HomeMy WebLinkAbout2010-07-07; Planning Commission; ; GPA 07-02|LCPA 07-02|ZCA 07-01 - ENVISION CARLSBADThe City of Carlsbad Planning Department
A REPORT TO THE PLANNING COMMISSION
Item No.
P.C. AGENDA OF: July 7, 2010
Application complete date: N/A
Project Planner: Jennifer Jesser
Project Engineer: N/A
SUBJECT: GPA 07-02/LCPA 07-02/ZCA 07-01 - ENVISION CARLSBAD - A request
for a recommendation of approval of the Envision Carlsbad Phase 2 Draft Work
Program, which consists of a comprehensive update to the Carlsbad General Plan,
Local Coastal Program, and Zoning Ordinance.
I. RECOMMENDATION
That the Planning Commission ADOPT Planning Commission Resolution No. 6710
RECOMMENDING APPROVAL of the Envision Carlsbad Phase 2 Draft Work Program.
II.INTRODUCTION
On January 12, 2010, the City Council accepted the Carlsbad Community Vision (Vision), which
is the result of Envision Carlsbad Phase 1 (Phase 1) and reflects the community's most important
values and aspirations for Carlsbad's future. A summary of the Vision core values is included as
Attachment 2; a complete copy of the Vision was previously distributed to the Planning
Commission and is available on the project website (www.envisioncarlsbad.org).
One of the primary steps toward implementing the Vision is to update Carlsbad's General Plan,
Local Coastal Program, and Zoning Ordinance to ensure the policies and regulations within those
documents are aligned with the Vision (Envision Carlsbad Phase 2). The proposed Envision
Carlsbad Phase 2 Draft Work Program outlines the process to complete the update work.
III. PROJECT DESCRIPTION AND BACKGROUND
The purpose of this report is to request that the Planning Commission recommend to the City
Council approval of a Draft Work Program for completion of Phase 2. The Draft Work Program
is summarized in Section IV, below, and a complete copy of the Draft Work Program is provided
as Exhibit "X" attached to Attachment 1 (Planning Commission Resolution).
As mentioned above, Phase 2 is necessary to align the City's policies and regulations with and
implement the Vision. The Vision is the result of a successful 12-month community-wide
visioning effort that occurred from November 2008 to November 2009 (Phase 1).
The Carlsbad community participated in Phase 1 and expressed their values and aspirations for
Carlsbad's future through a variety of means, which included:
O
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• A 19-member Envision Carlsbad Citizens Committee (EC3)
• A citywide resident survey
• Four community workshops
• Stakeholder interviews
Dyett and Bhatia was the primary consultant that assisted the City in successfully completing
Phase 1, and they are recommended as the lead consultant to complete Phase 2.
IV. ANALYSIS
A. Draft Work Program
The proposed Phase 2 Draft Work Program is summarized as follows:
TABLE 1
SUMMARY OF ENVISION CARLSBAD PHASE 2 DRAFT WORK PROGRAM
Summary Description
Task
1
Existing
Conditions
& Issues
Exploration
Detailed research and technical data gathering corresponding to the
subject matter addressed by the vision core values (see Attachment 2) will
be conducted and assembled in the form of working papers. Working
papers will be presented and discussed during a series of topic-specific
EC3 working sessions.
Task
2
Plan&
Policy
Alternatives
Ideas regarding applying the Vision to existing conditions will be
translated into alternative land use and transportation plans for
consideration and discussion by the EC3 and the public.
Task
3
Preferred
Plan
A Preferred Plan will be developed and refined in collaboration with the
community and decision makers, including four community workshops.
Much of the focus of choosing a Preferred Plan will revolve around
satisfying the Vision core values and achieving a balanced mix of land
uses based on identified need. Key policies will be defined. Choices and
tradeoffs will be discussed regarding the integration of the General Plan,
LCP, Zoning, and Specific and Master Plans.
Task
4
Draft
General
Plan
The Preferred Plan and Key Policies will be combined and expanded into
a Draft General Plan. General Plan chapters are intended to closely
correspond with the Vision core values.
Task
5
Draft
Housing
Element
In this task, the Carlsbad Housing Element will be updated in conjunction
with the update of the rest of the General Plan, to ensure information and
policies are fully integrated and consistent.
Task
6
Draft Local
Coastal
Program
The Draft Local Coastal Program (LCP) will be prepared concurrent with
the Draft General Plan, and will connect Coastal Act requirements to the
Vision core values.
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TABLE 1, CONTINUED
SUMMARY OF ENVISION CARLSBAD PHASE 2 DRAFT WORK PROGRAM
Summary Description
Task
7
Master &
Specific Plan
Updates
In this task, existing master and specific plans will be evaluated for
consistency with the updated General Plan, LCP, and Zoning Ordinance.
Based on this evaluation, they will be either amended to be consistent
with or consolidated into the updated General Plan, LCP, and Zoning
Ordinance, or eliminated if they are no longer necessary.
Task
8
Draft Zoning
Ordinance
The Carlsbad Zoning Ordinance will be updated to implement the new
General Plan, and ensure consistency with current practices and state and
federal law. The new Zoning Ordinance will be easy to use, flexible, and
enriched with graphics and illustrations. New tools will be developed for
navigation of the ordinance (including web approaches).
Task
9
Environmental
Review
A comprehensive program Environmental Impact Report (EIR) will be
prepared. The EIR will fulfill CEQA requirements for the updated
General Plan, LCP, Specific/Area Plan updates, and Zoning Ordinance.
Impact assessment will be conducted parallel to Plan preparation so that
mitigation can be built-in to the Plan as policies, rather than added-on as
"mitigation." The most current CEQA guidelines will be used for each
issue area, including global warming and greenhouse gases (GHGs).
Task
10
Hearings &
Adoption
Draft documents will be taken through the hearing process and undergo
certification (in the case of the EIR) and adoption (for planning and
zoning documents).
B.Consultant Team and Roles
As mentioned previously, Dyett and Bhatia was the primary consultant for Envision Carlsbad
Phase 1. Staff and the EC3 have developed a good working relationship with Dyett and Bhatia,
and they are familiar with the community's values as a result of the Phase 1 visioning process.
Dyett and Bhatia also have a high level of expertise and experience in preparing General Plan,
LCP, and Zoning Ordinance updates. Therefore, based on the established working relationship,
their familiarity with the community's Vision, and their expertise in updating city policies and
regulations, staff recommends that Dyett and Bhatia continue their work with the City and assist
in the completion of Envision Carlsbad Phase 2.
In addition to Dyett and Bhatia, the proposed agreement includes various sub-consultants that
will assist the City and Dyett and Bhatia (primarily related to the environmental impact report).
The following is a list of the consultants that are proposed to assist in the completion of Phase 2,
and a description of their roles:
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TABLE 2
CONSULTANT TEAM AND ROLES
Consultant Role
Dyett &
Bhatia
(D&B)
Planning and Consultant Project Management. D&B and City staff will work
together to lead all aspects of the preparation of Phase 2. D&B will manage
preparation of background research, alternatives, as well as the General Plan
(including the Housing Element). D&B will review, coordinate, and edit work of
the sub-consultants, and ensure that all work products are seamlessly integrated.
D&B will also have responsibility for the preparation of the LCP and the Zoning
Ordinance, and will manage and coordinate the Environmental Impact Report
(EIR), with technical input from other technical consultants/sources.
Dudek
Environmental Planning. Dudek will take the lead on preparing the background
information on the environmental technical topics, including biological resources,
air quality, energy, climate change, hydrology and water quality, hazards/
hazardous materials, noise, and geology, soils, and mineral resources. Dudek will
also lead research and analysis for cultural and historic resources.
Fehr&
Peers
Associates
(F&P)
Transportation Planning. F&P will work with D&B and the City on
transportation analysis and will develop a circulation system that is green, clean
and integrated with land use; balances the needs of autos, bikes, and pedestrians;
and is consistent with desired neighborhood character, and addresses the
community's walking, biking, and connectivity needs expressed in the Vision.
F&P will also coordinate with SANDAG on traffic modeling.
Rosenow
Spevacek
Group
(RSG)
Economic and Fiscal Consultants. RSG will provide the background working
paper on economic opportunities that will include analysis of long-term land use
demand, focusing on key land uses and opportunity sites; prepare a fiscal model
and evaluate impacts of land use alternatives on the City's General Fund; and
prepare the economic prosperity strategy for the General Plan that is consistent
with the economic objectives of the Vision.
BW
Research
(BWR)
Public Opinion Surveyors. BWR will conduct a public opinion survey on land
use and transportation alternatives developed for the General Plan update.
Optional
Facilitator
Public Facilitation. The Draft Work Program provides for the addition of a
public facilitator for involvement at specific community workshops/meetings, if
determined necessary.
C. City Staff Role
Phase 2 will be a partnership between City staff, EC3, and the consultant team. The
complementary skills and knowledge of staff and consultants will result in a process that is
efficient and a General Plan, LCP, and Zoning Ordinance that are effective.
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ENVISION CARLSBAD
Throughout Phase 2, city staff will:
• Provide baseline information to consultants about Carlsbad.
• Provide direction to consultants and carefully review all work products.
• Coordinate with the EC , City Council, Planning Commission, and other boards,
commissions, and committees.
• Lead the preparation of amendments to master and specific plans.
• Lead community outreach and communications.
• Maintain communication with neighborhood and other interest groups.
• Coordinate with surrounding jurisdictions and other agencies.
In addition, a Technical Advisory Committee (TAG) will be formed, which will be comprised of
members from all major departments in the City. The primary role of the TAG will be to advise
on the technical aspects of the General Plan, LCP, and Zoning Ordinance.
D. Community and Decision-Maker Involvement
The Phase 2 Draft Work Program is designed to actively involve the community and City
decision-makers throughout the process. As mentioned previously, the objective of Phase 2 is to
align the General Plan, LCP, and Zoning Ordinance with the Vision. The Vision directly reflects
the community's aspirations for the future, as expressed during Phase 1; therefore, any document
designed to implement the Vision (i.e., the General Plan, LCP, and Zoning Ordinance) must also
reflect input from the community to ensure that their Vision is interpreted and implemented as
they envisioned. The community's input is critical in identifying preferred alternatives to
implement the Vision.
In addition to the community's participation in the process to update the General Plan, LCP, and
Zoning Ordinance, the City's decision-makers (City Council, Planning Commission, and other
Boards and Commissions) must also be involved at various stages of the process to provide
guidance and direction on key issues, and to ensure the process is proceeding in a direction that
they can support.
The following summarizes the community and decision-maker involvement planned for Phase 2:
TABLE 3
SUMMARY OF COMMUNITY & DECISION-MAKER PARTICIPATION
The ECJ will:
• Assist staff and D&B in shepherding the Phase 2 process.
• Review staff and consultant research and technical
analyses.
• Participate in interactive workshop-style meetings.
• Guide development of alternatives and the Preferred Plan.
• Provide direction on General Plan policies.
• Serve as conduits to the community, providing information
about the process and how to participate.
Community
Participation ECJ
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TABLE 3, CONTINUED
SUMMARY OF COMMUNITY & DECISION-MAKER PARTICIPATION
Community
Participation
Cont'd.
Other
Residents &
Community
Members
The community will:
• Provide input on alternatives and the Preferred Plan, as
well as the Housing Element, Zoning Ordinance, and
Environmental Review.
• Participate in:
o Neighborhood & Group Meetings
o Stakeholder Meetings
o Workshops
o Survey
o Open houses
o Public hearings
Decision-
Maker
Participation
City Council
&
Planning
Commission
The City Council and Planning Commission will:
• Provide direction at all key stages of the process (as
research is completed, or as public input is gathered, the
City Council and Planning Commission will review this
information and provide broad direction).
• Review key policy proposals.
• The Planning Commission will be directly involved in
steering the Zoning Ordinance update.
• Hold hearings on all planning documents.
Other
Boards,
Commissions
&
Committees
Other City Boards and Commissions will:
• Provide input related to aspects of the update process that
are closely related to their roles (e.g., the Historic
Preservation and the Arts Commissions will be involved in
the development of the History, Arts, and Cultural
Resources polices in the General Plan).
The City's Communications Department is currently working with Planning Department staff on
developing a communications plan, which will involve strategies to ensure widespread, clear,
and effective communications throughout Phase 2, including newsletters, City and media
publications, a project website, and possibly Facebook (or other similar interactive forum).
E. EC3 Review of Draft Work Program
At the May 12, 2010 EC3 meeting, the Phase 2 Draft Work Program was presented to the
committee. The EC3 was asked to review the Draft Work Program and provide comment. The
Draft Work Program was revised to incorporate the committee's comments, and on June 9, 2010,
was presented to EC3 for their consideration. The committee unanimously determined to
forward on the Draft Work Program as presented in the attachment to this staff report.
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V. ENVIRONMENTAL REVIEW
The activities associated with Envision Carlsbad Phase 2 (public outreach, analysis, research,
and preparation of draft documents) will not involve or result in any disturbance to the
environment, and is categorically exempt from the California Environmental Quality Act
(CEQA). CEQA Section 15306 describes the following activities as being exempt from
environmental review:
"...basic data collection, research, experimental management, and resource
evaluation activities which do not result in a serious or major disturbance to an
environmental resource. These may be strictly for information gathering purposes,
or as part of a study leading to an action which a public agency has not yet
approved, adopted, or funded."
The future adoption and implementation of a new General Plan, LCP, and Zoning Ordinance will
be subject to CEQA, and an Environmental Impact Report will be prepared as part of the Phase 2
process.
ATTACHMENTS:
1. Planning Commission Resolution No. 6710
2. Summary of the Carlsbad Community Vision
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Table of Contents
1 Introduction 3
2 Team and Roles 4
2.1 Consultant Team and Roles 4
2.2 City Staff Role 5
Interdepartmental Technical Advisory Committee (TAG) 5
3 Community and Decision-Maker Involvement 6
3.1 Decision-Maker Roles and Meetings 6
Envision Carlsbad Citizens' Committee (ECS) 6
City Council and Planning Commission 7
Other Commissions, Boards, and Committees 7
3.2 Community Meetings and Outreach 7
Multifaceted Outreach 8
Staff/Consultant Collaboration 8
Community Workshops and Open Houses 8
Stakeholder Interviews and Agency Consultations 9
Neighborhood and Key Group Meetings 9
Newsletters 9
Survey 10
Website 10
EIR Scoping Meeting 10
4 Scope of Work 11
TASK 1: Existing Conditions and Issues Exploration 15
TASK 2: Plan and Policy Alternatives 22
TASK 3: Preferred Plan 24
TASK 4: Draft General Plan 28
TASK 5: Draft Housing Element 33
TASK 6: Draft Local Coastal Program 38
TASK 7: Master, Specific, and Other Area Plans Update 40
TASK 8: Draft Zoning Ordinance Update 41
TASK 9: Environmental Review 48
TASK 10: Hearings and Adoption 56
5 Schedule 58
Appendix: Acronyms and Abbreviations 61
Envision Carlsbad Phase 2: Draft Work Program
July?, 2010
Figures and Tables
Task Summary, Public Participation, and Products Graphic 13
Task 1 Working Papers Summary Graphic 16
Master Schedule 59
Envision Carlsbad Phase 2: Draft Work Program
July 7, 2010
1
In January 2010, the Carlsbad City Council adopted the Carlsbad Community Vision (Vision).
The Vision represents the community's most important values, priorities, and aspirations for
Carlsbad's future, and is the result of Envision Carlsbad Phase 1. Envision Carlsbad Phase 2 is
the next step toward implementing the Vision. Phase 2 is the focus of this Work Program, and as
described below, consists of a comprehensive update of the Carlsbad General Plan, Local Coastal
Program (LCP), and Zoning Ordinance. A primary objective of Phase 2 is to develop a General
Plan, LCP, and Zoning Ordinance that are innovative, based on sustainability, and are aligned
with the core values of the Vision described below:
Core Value
Small Town Feel, Beach
Community Character, and
Connectedness
Open Space and the
Natural Environment
Access to Recreation and
Active, Healthy Lifestyles
Vision Statement
Enhance Carlsbad's defining attributes—its small town feel and beach
community character. Build on the city's culture of civic engagement,
volunteerism, and philanthropy.
Prioritize protection and enhancement of open space and the natural
environment. Support and protect Carlsbad's unique open space and
agricultural heritage.
Promote active lifestyles and community health by furthering access to
trails, parks, beaches, and other recreation opportunities.
The Local Economy,
Business Diversity, and
Tourism
Walking, Biking, Public
Transportation, and
Connectivity
Strengthen the city's strong and diverse economy and it's position as an
employment hub in North San Diego County. Promote business diversity,
increased specialty retail and dining opportunities, and Carlsbad's
tourism.
Sustainability
History, the Arts, and
Cultural Resources
High Quality Education and
Community Services
Neighborhood
Revitalization, Community
Design, and Livability
Increase travel options through enhanced walking, bicycling, and public
transportation systems. Enhance mobility through increased connectivity
and intelligent transportation management.
Build on the City's sustainability initiatives to emerge as a leader in green
development and sustainability. Pursue public/private partnerships,
particularly on sustainable water, energy, recycling, and foods.
Emphasize the arts by promoting a multitude of events and productions
year-round, cutting-edge venues to host world-class performances, and
celebrate Carlsbad's cultural heritage in dedicated facilities and programs.
Support quality, comprehensive education and life-long learning
opportunities, provide housing and community services for a changing
population, and maintain a high standard for citywide public safety.
Revitalize neighborhoods and enhance citywide community design and
livability. Promote a greater mix of uses citywide, more activities along the
coastline, and link density to public transportation. Revitalize the Village
as a community focal point and a unique and memorable center for
visitors, and rejuvenate the historic Barrio neighborhood.
Envision Carlsbad Phase 2: Draft Work Program
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The team brings the experience and knowledge needed to accomplish Envision Carlsbad Phase 2.
2.1
Consultant team and roles shall be as follows:
• Dyett & Bhatia, Urban and Regional Planners (D&B) - Planning and Consultant
Project Management. D&B and City staff will work together to lead all aspects of the
preparation of the assignment. D&B will manage preparation of background research,
alternatives, as well as the General Plan (including the Housing Element). D&B will
review, coordinate, and edit work of the sub-consultants, and ensure that all work
products are seamlessly integrated. D&B will also have responsibility for the preparation
of the LCP and the Zoning Ordinance, and will manage and coordinate the
Environmental Impact Report (E1R).
• Dudek - Environmental Consultants. Dudek will take the lead on preparing the
background information on the environmental technical topics, including biological
resources, air quality, energy, climate change, hydrology and water quality,
hazards/hazardous materials, noise, and geology, soils, and mineral resources. Dudek will
also lead research and analysis for cultural and historic resources.
• Fehr & Peers (F&P) - Transportation Consultants. F&P will work on transportation
analysis and will develop a circulation system that is, green, clean, and integrated with
land use; balances needs of autos, public transportation, bikes, and pedestrians; is
consistent with desired neighborhood character; and addresses the community's
connectivity needs expressed in the Vision. F&P will also coordinate with SANDAG on
traffic modeling and align the transportation analysis with the most current McClellan-
Palomar Airport Land Use Compatibility Plan.
• Rosenow Spevacek Group, Inc. (RSG) - Economic and Fiscal Consultants. RSG will
provide the background working paper on economic opportunities that will include
analysis of long-term land use demand, focusing on key land uses and opportunity sites;
prepare a fiscal model and evaluate impacts of land use alternatives on the City's General
Fund; and prepare the economic prosperity strategy for the General Plan that is consistent
with the economic objectives of the Vision.
• BW Research Partnership, Inc. (BWR) - Public Opinion Surveyors. BWR will
conduct a public opinion survey on land use and transportation alternatives developed for
the General Plan update.
In addition, our scope provides for the addition of a facilitator for focused involvement for
specific community workshops. Consultants and staff will work with input provided by the ECS;
final drafts of a number of work products that will be adopted/certified by the City Council
(General Plan, Local Coastal Program, EIR, and Master/Specific Area Plan amendments) will be
reviewed by the EC3, prior to review by the Planning Commission or City Council.
Envision Carlsbad Phase 2: Draft Work Program
July 7, 2010
2.2 City
The project will be a partnership between City staff, ECS, and the consultant team. The
complementary skills and knowledge of staff and planning consultants will result in a process that
is efficient and a General Plan, LCP and Zoning Ordinance that are effective. City staff will
provide baseline information on land use, development projects, public facilities, and other
resources. City staff will carefully review all work products, and provide unified direction to the
consultant. Staff will also coordinate with the ECS, City Council, and Planning Commission, as
well as other boards and commissions, and take the lead in making presentations to these bodies.
City staff will also have lead responsibility for preparing all master, specific, and area plan
amendments.
City staff will also lead community outreach (with consultant support as needed), including
managing ECS meetings, maintaining liaison with neighborhood and other interest groups,
organizing community workshops and briefings, conducting stakeholder outreach, and
coordinating with surrounding jurisdictions.
INTERDEPARTMENTAL TECHNICAL ADVISORY (TAG)
A staff Interdepartmental Technical Advisory Committee (TAG) will advise on the technical
aspects of the preparation of the General Plan, LCP, and Zoning Ordinance. Consultants will not
attend these meetings, unless requested to do so. TAC meetings will occur at several stages, as
indicated in the Scope of Work (Section 3 of this Work Program); additional meetings may be
incorporated as work progresses. While this work program does not specify which or how many
staff should be included on the TAC, its members should offer expertise in all facets of
community development, from recreation to safety, from economics to public works. The TAC
will thus work together cooperatively to provide the critical, realistic perspective of active users
and enforcers of citywide plans, guidelines, and regulations.
Envision Carlsbad Phase 2: Draft Work Program
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Involvement
At the outset of the process, City staff will develop a Phase 2 Communications Plan that will
establish firmer dates for the various public/decision-maker participation activities, and more
clearly delineate consultant and City staff roles particularly in regard to distributed outreach
materials (mailings, web, etc). The anticipated public and decision-maker participation activities
are illustrated in detail in the Task Summary graphic (page 13) and the Phase 2 Schedule graphic
(page 59, and are described throughout the text of Chapter 4: Scope of Work. Public and
decision-maker participation activities will be refined with ECS input, and as the process moves
forward. A summary description of community participation activities is provided below.
3.1
CARLSBAD CITIZENS' |EC3)
The EC3 will continue to be a principal body that will shepherd the Phase 2 process. It will
provide leadership; review City staff and consultant research and technical analyses; and in
hands-on, interactive workshop-style meetings, provide direction on General Plan policies, and
guide development of alternatives and a Preferred Plan (for the General Plan). The EC3 will focus
on input, review, and "buy-in" to carry out the Vision, rather than deliberating in detail on precise
policy and program wording. EC3 members will also serve as conduits to their respective
constituencies, infonning them about the Phase 2 program and how the public can participate,
distributing workshop flyers and other information about Phase 2, and encouraging participation
in the process.
The EC3's role will largely focus on development of the General Plan in alignment with the
Vision. The policies developed in the General Plan will guide development of the Local Coastal
Program and the Zoning Ordinance. The EC3 role in the Zoning Ordinance update consists of an
early workshop on zoning issues and options, while their role in the Local Coastal Program
update consists of a review of the administrative draft LCP before it goes to the public and the
Coastal Commission. The Planning Commission will generally serve as the sounding board for
more technical zoning issues.
The EC3 will meet an average of once a month, with the exception of holiday periods, although
the EC3 may meet twice in close sequence when the Preferred Plan is being compiled. The EC3
role will be complete when City Council has adopted the General Plan, Local Coastal Program,
and Zoning Ordinance. In the 32-months leading up to the Planning Commission and City
Council hearings, the EC3 will meet approximately 25 times—16 of these meetings are shown on
the graphic schedules (in chapters 4 and 5 of this Work Program), while the remaining seven
provide flexibility for additional meetings as needed. To ensure that the project stays on schedule,
if the EC3 is unable to conclude a planned agenda for a meeting, additional meeting(s) may need
to be scheduled rather than waiting for the next regularly scheduled meeting.
Envision Carlsbad Phase 2: Draft Work Program
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CITY COUNCIL AND
The City Council and the Planning Commission will be active participants and provide direction
at all key stages of the process. Rather than simply reviewing finished products, the work
sequence is structured such that as background research is completed, or as public input on
alternatives is gathered and synthesized, the City Council and the Planning Commission will
review this information, and provide broad direction to the ECS and the project team. Decision-
makers will also be involved in reviewing key policy proposals. Ultimately, public hearings will
be held for Planning Commission recommendation and City Council adoption of the General
Plan, Local Coastal Program, and Zoning Ordinance, and certification of the Environmental
Impact Report.
It is anticipated that the City Council and the Planning Commission will meet about 10-12 times
before the public hearings (with consultant participation in six of these meetings), with additional
periodic briefings by staff. The Planning Commission will be directly involved in the Zoning
Ordinance update, reviewing key issues and proposals, and interim drafts, which will be provided
to them in four or five sections. The Scope of Work also includes consultant attendance at two
public hearings for adoption of the documents, equating to consultant attendance at a total of
eight Planning Commission/City Council meetings. The other meetings will be staffed without
consultants.
OTHER COMMISSIONS, AND
Because the General Plan touches upon all aspects of City operations, other commissions, boards,
and committees will be involved in the process of preparing the General Plan, Local Coastal
Program and Zoning Ordinance; particularly in regard to topics that are closely related to their
roles—for example, the Historic Preservation and the Arts commissions will be involved in
development of the History, Arts, and Cultural Resources Element of the General Plan. City staff
will directly lead coordination with these commissions and boards; the consultant will be present
for a limited number of these meetings.
3.2 Community
The extensive community outreach that occurred during Envision Carlsbad Phase 1 established a
firm foundation for moving forward with Phase 2. As a brief recap, Phase 1 outreach obtained
input from over 7,000 households by mail-in survey, over 265 community members by public
workshop, and 81 different organizations by stakeholder interview, organizations representing,
but not limited to, biotech, real estate, hospitality, manufacturing, lagoon preservation, libraries,
medical centers, and sports leagues. During Phase 2, the outreach program will keep these
contributors involved in the process, and seek input from those who have yet to become involved.
One of the primary objectives of outreach in Phase 2 will be to gain community input on the
alternatives for a Preferred Plan, such as desired land uses, mixes, and development intensities in
different parts of the city, and transportation priorities. Additional focused outreach will be
conducted specific to the Housing Element, Zoning Ordinance, and Environmental Review, in the
form of forums, workshops, or open houses. Finally, community members will be invited to all
public meetings and hearings.
Envision Carlsbad Phase 2: Draft Work Program
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The Phase 2 community outreach program will be multi-faceted, including community
workshops, open houses, stakeholder meetings, and neighborhood and key group meetings.
Additionally, a community survey on alternative plans will be prepared, and newsletters will be
prepared to keep the community informed. The website will be actively maintained, and all
materials will be accessible through the web. Periodic emails will be sent to update community
members on Phase 2 progress. In addition, use of Facebook (such as an Envision Carlsbad Fan
Club group) or other online public forum will be explored in lieu of or in addition to emails. Staff
will also consider whether it would be helpful to televise EC3 meetings or include them in
webcasts to provide more opportunity for community members to stay in touch with the process.
STAFF/CONSULTANT COLLABORATION
We have proposed elements of a community participation program consistent with our
community outreach conducted for Phase 1, as well as our experience preparing General Plan
updates, Zoning Ordinances, Housing Elements, and other similar documents for other
communities. To ensure cost effectiveness and to maintain and enhance staff-community
connections throughout the process, the outreach program will be directed by staff, with
consultant participation at all EC3 meetings, key Planning Commission/City Council meetings,
and major workshops and open houses. If so desired, we are willing to allocate greater consultant
resources to public outreach.
COMMUNITY AND OPEN
Following the presentation of background working papers in Task 1, Task 2 will kick off with
workshops for stakeholders from the development community to give input on land use and
policy direction. In Task 3, General Plan and policy alternatives (provided in an Alternatives
Report prepared at the conclusion of Task 2) will be brainstormed with the entire community in a
round of workshops that will focus on the land use and policy options related to the Vision and to
other important issues or areas of significant change or controversy. The Alternatives report will
be made available to the public online at least 2 weeks prior to the workshops so that the public
can review it. This feedback will inform preparation of the Preferred Plan (Task 3). In addition,
Envision Carlsbad Phase 2: Draft Work Program
July/, 2010
open houses and/or workshops will occur at least once each on the Housing Element and the
Zoning Ordinance update. Public hearings on the General Plan, Housing Element, LCP, and
Zoning Ordinance will be preceded by an open house (coinciding with the last ECS meeting),
where information will be arranged in "stations" (each focusing on a Vision core value, for
example) where community members can review material, query planners, and provide input.
This work program assumes two additional "floating" public workshops/open houses, which will
be assigned to tasks as additional community engagement needs are identified.
AND AGENCY
Phase 2 stakeholder interviews, agency consultation meetings, and stakeholder forums will begin
as early as October 2010, undertaken for Task 5 (Housing Element), Task 6 (Draft LCP), Task 7
(Master, Specific, and Area Plans Update), and Task 8 (Zoning Ordinance Update). An important
aspect of the consultation process is to develop a comprehensive consultation list that includes
neighboring jurisdictions, regional agencies such as SANDAG and the Airport Authority, state
agencies such as Caltrans and the Coastal Commission, and inter-jurisdictional groups such as
school districts. In addition, we will ensure that the requirements of SB 18 are met by consulting
with Native American tribes from the beginning of the process.
The consultant team will be involved in conducting stakeholder meetings for the Housing
Element and the Zoning Ordinance, and will also participate in one face-to-face meeting with
California Coastal Commission staff. Other stakeholder outreach will be conducted by staff,
including follow-up consultation meetings with the Coastal Commission as necessary to ensure
their active involvement and productive input on the project.
AND KEY GROUP
As the Draft General Plan is developed, meetings focused on specific topics may be held. These
may be in the form of meetings with key constituencies, or on specific policy topics. These
meetings may be held in conjunction with other forums to energize participants, such as Chamber
of Commerce meetings, other City commission meetings, Palomar Airport Advisory Committee
meetings, lagoon group meetings, the Carlsbad Village Association meetings, School District
meetings, Imagine Carlsbad meetings, etc. A table may be set up at the farmers' market, street
fairs, and other community events as another way to reach the public on their own ground.
Neighborhood Briefings/Key Group Meetings are not shown on the schedule graphic, but may be
added as the schedule and participation program are refined. These will primarily be staff-led
efforts, with cbnsultant team participation defined by the effort shown on the budget.
NEWSLETTERS
Newsletters will be prepared periodically to keep community members apprised of the status of
the process, major milestones, emerging ideas, as well as to announce upcoming opportunities for
participation. Examples of possible newsletter themes include announcement of the start of Phase
2, Alternative Plans (workshops announcement), Draft General Plan and Housing Element (Open
House announcement), Zoning Ordinance, and Environmental Review (EIR public hearing
announcement). The newsletter on alternatives could also include the survey.
Envision Carlsbad Phase 2: Draft Work Program
July 7, 2010
The newsletters will be designed by the City communications office, using content (text,
drawings, map figures, etc.) and design input provided by the D&B team.
A survey is assumed to be included in Phase 2 for the purposes of gathering broad community
feedback on potential land use and policy alternatives developed in Task 2, and to be refined in
Task 3. The Scope of Work provides several options for this effort.
WEBSITE
Similar to the website role in Phase 1, in Phase 2 it will continue to serve as an engaging outreach
forum and repository of information, including technical reports and documents, outreach
materials (such as forum presentations and ECS meeting presentations), and results of the survey
and community workshops. The project e-mail list will be maintained and updated, and a
Facebook fan club and/or other interactive forums will be explored as a tool to broaden outreach.
The website will continue to be staff-maintained.
EIR SCOPING MEETING
A scoping meeting on the EIR will be held (Task 9), and community members and agencies will
be able to provide comments on the Draft EIR during the public review period. A Planning
Commission meeting during the public review period to collect oral comments from the
community could also be held.
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Envision Carlsbad Phase 2: Draft Work Program
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The following describes the scope of work for Phase 2 of the Envision Carlsbad process. Key
meetings and products are also listed. The text and Task Summary graphic (next page) show the
relationship between key meetings (EC3, TAC, community, and decision-makers) and products.
In Chapter 4: Schedule, a schedule graphic shows the anticipated timeline of tasks, products, and
meetings. The Scope of work and proposed products directly build on Phase 1 work efforts.
The task-by-task descriptions that follow present the approach to data collection, alternatives
analysis, policy formulation and preparation of the documents. Each task description includes a
purpose statement at the beginning in italics.
Initials in parentheses following the sub-task heading identify the lead firm for each sub-task:
• D&B Dyett & Bhatia, Urban and Regional Planners
• Dudek Dudek, Environmental Consultants
• F&P Fehr & Peers, Transportation Consultants
• RSG Rosenow Spevacek Group, Inc., Economic and Fiscal Consultants
• BWR BW Research Partnership, Inc., Public Opinion Surveyors
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12
Envision Carlsbad Phase 2 Task Summary, Public Participation, and Products
City of Cartebad General Plan, LCP, and Zoning Ordinance Update
Taskt
Existing Conditions andIssues Exploration
Tasks
Zoning OrdinanceUpdate
Tasks
EnvironmentalReview
Task 10
Hearings andAdoption
Summary:
Envision Carlsbad Phase 2: Draft Work Program
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1: AND
77?e objective of this task will be to conduct an initial introductory meeting of City staff and all
team members, and obtain and compile focused information on existing conditions, issues, and
opportunities in Carlsbad, structured on the Vision core values, and building on the opportunities
and constraints analysis initiated during Phase 1. Examples of issues and opportunities that may
be reviewed during this task include those associated with the Barrio area, Plaza Camino Real,
Quarry Creek, smart growth areas, the power plant, airport, housing, habitat protection,
business and economy, sustainability, community character, transportation, connectivity,
recreation, leveraging coastal assets, etc.
This analysis will be presented as a series of working papers. The working papers will be
organized according to Vision core values, such that the nine core values will be covered in a
series of six working papers, discussed with the ECS over the course of four meetings (one paper
each at two meetings and two papers each at the remaining two; see graphic below).
The working papers will summarize existing conditions in Carlsbad with regard to a wide range
of subject matter affecting physical development, including land use and population distribution
and growth trends; economy and employment; community character; urban design;
transportation systems; parks and open space; historic, arts, and cultural resources; community
services; natural resources; sustainability; and safety considerations. The working papers are
meant to provide background information to help ECS and decision-makers engage in dialogue
about policy issues and directions. The information collected will form the existing conditions for
the General Plan Update and provide a framework for the preparation of land use alternatives
and focused policy directives (Task 2) that align with the Vision. For several topics, this
background assessment will contribute to the "setting" for the Environmental Impact Report in
Task 9, although the EIR may contain more detail than may be compiled at this stage.
These working papers will draw upon recent studies and existing environmental assessments,
while for some topics new information will be compiled. Working papers will provide discussion
of the local, state, and federal legislative and judicial landscape relevant to each of the core
values. This would include (but not be limited to) subjects such as climate change and greenhouse
gas reduction mandates (SB375 and ABS2), environmental protections (CESA, FESA, Coastal
Act, Clean Air Act, Clean Water Act), telecommunications, airports (ALUCP), energy (power
plant), water reuse and conservation, and more.
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Envision Carlsbad Phase 2: Draft Work Program
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Vision Core Value Working Paper ECS Meeting
The Local Economy, Business Diversity, and Tourism
i Open Space-end the Natural Environment
Access to Recreasion and Active, Healthy Lifestyles
History, tho Arts, and Cultural Resources
High Quality Education and Community Services
Walking, Biking, Public Transportation, and Connectivity
Small Town Feel, Beach Community Character,
and Connectedness
Neighborhood Revitalizatipn, Community Design,
and Livability
Each working paper will be concise, visually rich, and clearly written so that it can be easily
understood by the public, relevant committees, and elected officials. Each paper will be a stand-
alone document, though D&B will prepare a simple, common style template for all the papers to
follow. A series of computer-based maps will be prepared and included with the working papers
to spur discussion. For each core value or group of core values, working papers will present:
• Background data and information on Carlsbad today;
• Analysis of existing conditions as either obstacles or facilitators of Vision core values;
and
• Key issues and implications that require policy deliberation. These will provide a
structure for EC3 discussion.
City Staff Role: City staff will actively participate in preparing and presenting the working
papers. For each working paper, consultant team members will consult with responsible City staff
members in addition to those in Community and Economic Development (such as those dealing
with parks and open space, transportation, and public facilities) to gather data, and identify and
explore key issues. City staff members will be involved in providing information to consultants,
reviewing products, participating side-by-side with consulting team members in making or
leading presentations to EC3, and presenting and reviewing the papers with commissions such as
Parks and Recreation. It should be noted that the working papers are interim documents meant to
stimulate thought and discussion, rather than to be adopted or endorsed. This work program does
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Envision Carlsbad Phase 2: Draft Work Program
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not include rounds of revision for working papers, but rather, the input from ECS regarding each
working paper will be channeled directly into later work program tasks (such as drafting plan and
policy alternatives).
A. Kick-off Meeting with City Staff (D&B, Team). Because several team-members will be
new to the project, an initial meeting of consulting team and team members from staff will be
held to review work to date, key issues, and aspirations for the project. At these meetings, any
new data sources will be identified, roles and responsibilities will be clarified,
communication protocols will be established, and work program clarifications will be
discussed.
City staff will also provide the team with an overview of existing plans and programs,
pipeline development, major opportunities, and issues. Additional information will be
assembled, including water, sewer, transportation and other facility plans, existing land use,
and details on the status of proposed and approved development projects, and sources of
information on evolving local, state, and federal mandates. All new team members will be
provided copies of products from Phase 1, as well as detailed stakeholder meeting notes
pertinent to their roles.
B. Prepare Working Papers (D&B, Team). Working papers will be as follows:
• WP #1: Sustainability (D&B, Dudek). D&B will lead preparation of the Sustainability
Working Paper, which will provide: a discussion about defining Sustainability in a way
that is meaningful for Carlsbad; a summary of Sustainability priorities expressed in the
Vision (e.g. energy, food, water, etc.); a review of current city and county activities and
programs related to Sustainability (e.g. current regulations, programs, funding streams,
business incentives, government investments, planning efforts and documents, etc.); a
review of existing statewide legislative context for Sustainability efforts; and a
comparison of the Community Vision statement and direction with existing efforts to
highlight opportunities for future activities. Dudek will summarize the greenhouse gases
and climate change context, existing city inventory resources and efforts, and
opportunities for achieving progress toward statewide AB 32 and SB 375 goals.
• WP #2: Local Economy, Business Diversity, and Tourism (RSG). RSG will assemble,
organize, and concisely summarize historic demographics, economic, and real estate
market information about the city, and prepare future projections by land use based on
reasonably foreseeable trends. These data will include information from the US Census,
the City-level details in SANDAG projections, as well as secondary data sources. A
resource for this paper may be the City's Sales Tax Leakage Report, which is updated
quarterly; it identifies where the city is losing sales tax in comparison to neighboring
cities, on a per capita basis. This will be a high level market analysis: it will represent a
critical examination of future demand for land uses, designed to answer specific policy
questions that have land use planning and fiscal implications for the City. This may
include: likely future demand for retail by type; future projections for industrial/business
park uses (which form a substantial portion of the City's employment core); demand for
office and hotel uses; as well as feasibility of various land uses and mixes for key infill
opportunity sites. For residential uses, information on housing projections by SANDAG
will be presented. An additional area of emphasis will be on understanding housing
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Envision Carlsbad Phase 2: Draft Work Program
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demand by different product types (single family vs. multifamily) and cost, resulting
from aging population, changing household composition and income levels, as well as the
City's desire for infill development and increased population in key areas, such as the
Village. For retail uses, this analysis will recognize the community's desire for increased
access to neighborhood retail uses as expressed in the Vision, in additional to long-range
fiscal considerations. It should be noted that this working paper will deal with quantities
of jobs and housing units; the resulting land use needs may differ based on policy
decisions relating to extent of land uses and development intensities, which will be
explored as part of the land use alternatives (Task 2). The topic of economic
sustainability will also be mentioned as one of the "three E's of sustainability" in WP #1
(environment, economy, equity) and fiscal sustainability for the City will be explored as
part of the fiscal model effort (Task 2).
• WP #3: Open Space and the Natural Environment; Access to Recreation and Active,
Healthy Lifestyles (Dudek, D&B). This working paper will reflect two core values—
Open Space and the Natural Environment; and Access to Recreation and Active, Healthy
Lifestyles. Carlsbad has a wealth of natural resources that are an integral part of the city's
character and quality of life. A comprehensive understanding of the locations and extent
of these resources, their local and regional importance, and potential threats to them is
essential to development of land use planning decisions, and policies for their protection.
Similarly, open space and natural resources, and their management, is integral to
residents' ability to achieve active, healthy lifestyles. This working paper will build on
the materials gathered by D&B during Phase 1 to describe existing natural and
recreational resources in the city and policy implications that should be discussed by the
ECS in preparation for developing land use and policy alternatives for the General Plan.
Important resources for this working paper include the Habitat Management Plan (HMP)
and stormwater management staff.
• WP #4: History, the Arts, and Cultural Resources; High Quality Education and
Community Services (Dudek, D&B). D&B and Dudek will partner on this working
paper, with Dudek spearheading the material on history, the arts, and cultural resources,
and D&B leading the research effort to summarize existing community and educational
services. Locations of historic structures will be shown on maps, while archaeological
resources or sacred sites protected by law may not be shown on maps, but described.
Schools and higher educational services will be summarized, and existing plans and
projections reviewed. This working paper will provide an opportunity to suggest ways in
which cultural/arts/library/education services may be better integrated in the land use and
social fabric of the entire Carlsbad community, capitalizing on synergies with the retail
sector as well as mixed-use development.
• WP #5: Walking, Biking, Public Transportation, and Connectivity (F&P). This
working paper will analyze the opportunities and constraints (both physical and
regulatory) of the existing transportation facilities, with a focus on multimodal
accessibility, connectivity and "smart growth" concepts. Key issues and implications that
require policy deliberation in the future will be highlighted. Components will include:
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Envision Carlsbad Phase 2: Draft Work Program
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Literature Review. F&P will review information obtained from previous studies; at a
minimum, this will include: specific plans; SANDAG's 2050 Regional Transportation
Plan; recent traffic count data, traffic studies, and EIRs; existing traffic analysis zones
(that are part of the SANDAG model); aerial photographs and base maps; street
improvement design standards and existing design documents, neighborhood traffic-
calming policies; local and regional transit maps and routes; SANDAG Regional Bicycle
Master Plan; City's Pedestrian and Bicycle master plans; Capital Improvement Program;
major development projects; the McClellan-Palomar Airport Land Use Compatibility
Plan; regionally significant projects; local, regional, state and federal programs, policies,
and requirements; and planning studies, engineering studies, and other available
information relevant to current and future multi-modal circulation.
Data Collection. For the purposes of this analysis, F&P has budgeted to conduct daily
counts on up to 30 roadway segments, but would not duplicate the efforts of the city's
existing annual traffic monitoring program. F&P will inventory, review, and/or obtain
information on the following: existing functional classification and posted speed limits of
City streets; accident statistics over past three years; pertinent traffic and travel
information available from the City, SANDAG, and Caltrans; existing transit services
and facilities; existing bicycle facilities; existing pedestrian and/or trail facilities
(including sidewalks); existing aviation facilities; existing goods movement facilities,
including rail.
Opportunities and Constraints Assessment. An assessment of the existing infrastructure
and related operations associated with the various modes of transportations serving the
city will be undertaken.
- Pedestrian Facilities. F&P will incorporate findings from the City's Pedestrian
Master Plan, and review inventory and assessments to identify deficiencies and
pedestrian needs. F&P will utilize a combination of field review, community input,
meetings with local organizations, analysis of collision data, review of traffic
volumes/flows, and a review of available aerial and other maps. Other information to
be collected and evaluated includes: safety (presence and quality of pedestrian
crossings); accessibility (missing curb ramps, sidewalk gaps, sidewalk obstructions;
would use findings from ADA analysis currently underway and augment as
appropriate); connectivity (between origins and destinations); walkability (field
reviews and public input).
- Bicycle Facilities. F&P will incorporate findings from the City's Bicycle Master
Plan. F&P will conduct field inventories and review currently available GIS data to
assemble information on current bicycle facility conditions in terms of unmet needs,
safety, connectivity, and convenience. Additional information will be collected from
various sources, such as bicycle accident data, traffic volumes, land use,
demographics, and bicycle counts.
- Transit Facilities. Data for existing transit ridership will be obtained from SANDAG
and NCTD, and summarized in tables, and figures as appropriate. A bus stop
inventory will be conducted, with the information summarized in tables and figures.
Information on stop amenities, nearby land uses, location nearside or farside of the
intersection, etc. will be provided. Deficiencies will be identified and documented in
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Envision Carlsbad Phase 2: Draft Work Program
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text, tables and figures. F&P will also review current linkages between transit
services and land uses to identify level of interaction, deficiencies, and opportunities.
F&P will assess the surrounding neighborhood and define the character of the area
near key transit stops. This approach will identify smart development that is
pedestrian friendly and promotes transit ridership. F&P will depict current
transportation infrastructure, transit services, streetscape features and existing
buildings and parking areas within }A mile radius around Coaster stops.
- McClellan Palomar Airport. The working paper will briefly discuss the airport as a
transportation facility, its impacts on the overall city transportation network, and will
highlight issues and options for enhancing connection to the airport.
- Smart Growth Areas. SANDAG-identified Smart Growth Areas within Carlsbad will
be identified and their pedestrian, bicycle, and public transportation needs called out
specifically within the working paper.
— Traffic Circulation. Daily roadway level of service and capacity analyses will be
conducted for all classified circulation roadway segments identified in the current
General Plan, including differentiating traffic into and out of Carlsbad. The overall
connectivity of the roadway system will be assessed, and unfinished roadway
segments (such as Cannon Reach A and Matron Road ECR to College Blvd) will be
identified, along with the system's compatibility with adjacent land uses. Points of
access will be assessed, especially in regard to access to regional freeway facilities.
WP #6: Small Town Feel, Beach Community Character, and Connectedness;
Neighborhood Revitalization, Community Design, and Livability (D&B). This working
paper will reflect two core values—Small Town Feel, Beach Community Character, and
Connectedness; and Neighborhood Revitalization, Community Design, and Livability.
Building on the community visioning process, the core elements of Carlsbad's identity
and character, and land use and urban/community design issues related to their
conservation and enhancement will be identified. The three major areas of analysis will
include:
Land Use. The land use work will build on the work initiated for the Opportunities and
Challenges Report. Focused windshield surveys will be conducted of key areas to verify
land use data accuracy. A complete land use data layer will be prepared, which will serve
as the basis for land use analysis, and alternatives.
Urban Design, Intensity, Mix, and Prototypical Analysis. This analysis will be conducted
at two scales: citywide^ and neighborhood/district. This analysis will be based directly on
Carlsbad's context - such as use patterns, building/street relationships, and streetscapes.
The following will be the scales of analysis:
- Citywide Scale. Carlsbad's community form and design characteristics will be
documented. This will include a description of the city's overall urban form (districts,
corridors, landmarks and focal points, landforms, and so forth) and key form-giving
components. Elements will be depicted on the base map, described, and illustrated by
photographs and drawings. The relationship between small town feel and "Smart
Growth" will be explored.
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Envision Carlsbad Phase 2: Draft Work Program
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- District/Neighborhood Scale. The analysis will focus on answering questions related
to building intensity and use mixes, and community and neighborhood character, in a
prototypical manner (such as neighborhoods, employment districts, etc.) The role of
and potential locations for new neighborhood/community gathering places will be
explored.
Neighborhood Revitalization/Focus Areas. This analysis will determine Focus Areas—
key revitalization areas, where change/intensification could be expected or should be
explored as part of the General Plan update process, based on a variety of criteria,
including field survey, and GIS-based intensity/valuation analysis. The consultant team
will also work with staff to identify any other existing uses that may be replaced or
intensified due to their economic obsolescence, physical deterioration, or incompatibility
with adjacent uses. Additionally, where substantial planning work has previously been
completed—such as for the Village—salient recommendations from existing plans or
reports will be summarized. This analysis will provide the opportunity to address issues
relating to key sites/corridors/districts in an integrated and interdisciplinary manner, and
help support neighborhood-based discussion of their challenges and prospects.
C. Review and Brainstorm Working Papers Assessment with EC3 and Other
Commissions. The six working papers will be reviewed in four meetings of the ECS. The
EC3 will brainstorm about conclusions and findings, in terms of how these may shape
potential alternatives or policies, rather than critique the papers. A substantial amount of time
will be reserved at each meeting for ECS discussion and feedback; the "world cafe" format
(small group discussion) may be used for the brainstorming component, rather than a staff- or
consultant-directed meeting. While the primary review and brainstorming group for the
working papers will be the ECS, some papers will be appropriate for review and discussion
by commissions and boards (such as Parks and Recreation Commission, Historic Preservation
Commission). Importantly, these working papers are discussion tools rather than final
documents. No time is budgeted at this stage for text or layout revision and refinement
following discussions by ECS or commissions.
D. Technical Advisory Committee Meetings. It is anticipated that the TAG will meet at least
four times to review the working papers before they are finalized.
Meetings: ECS Meetings (4)
Boards and Commissions (staff led)
TAC Meetings (4; no consultant participation)
Products: WP #1: Open Space and the Natural Environment; Access to Recreation and Active,
Healthy Lifestyles
WP #2: Walking, Biking, Public Transportation, and Connectivity
WP #3: Small Town Feel, Beach Community Character, and Connectedness;
Neighborhood Revitalization, Community Design, andLivability
WP #4: Local Economy, Business Diversity, and Tourism
WP #5: History, the Arts, and Cultural Resources; High Quality Education and
Community Services
WP #6: Sustainability
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TASK 2: AND POLICY
The objective of this task will be to translate the conclusions from Task 1, as well as results of the
community outreach from Phase 1, into alternative land use and circulation patterns. Decision-
makers and ECS members will be the drivers for shaping the alternatives, and provide direction
to the planning team by engaging in hands-on workshops.
This task will be conducted in two parts:
• Plan Formulation. Building on the identified issues, and opportunities and constraints,
approximately three "sketch plans" illustrating alternative land use patterns, with
supporting circulation system, for the Planning Area will be formulated (it may be more
or less depending on need, but this work program assumes three). Even if the actual
street pattern does not vaiy among alternatives, different land use patterns may generate
different transportation use patterns.
• Plan Evaluation. An evaluation of the alternative sketch plans will be conducted, so
informed decisions can be made. A key component of this task will be assembling a set of
performance measures to evaluate the alternatives. The attempt will be to translate each
of the core values into one or more metrics, recognizing that some of the values (such as
neighborhood character) may lend themselves to qualitative rather than quantitative
evaluation.
City Staff Role: City staff will be involved in all steps of this task, including brainstorming,
review and presentation.
A. Workshops with the Development Community (Staff; D&B). Two workshops/forums will
be held with the development community to ensure that a broad range of perspectives are
taken into account in the composition of potential land use alternatives. Major land owners,
business owners, and other development stakeholders will be invited to attend, building on
the outreach conducted in Phase 1.
B. Conduct Planning Commission/City Council Workshops to Brainstorm on Alternatives
(Staff; D&B). At this meeting, a summary of the working papers assessment will be
provided, with the bulk of the time reserved for decision-maker brainstorming on the
alternatives, with the Focus Areas (identified in Task 1) providing a structure for discussion.
The goal will be to have decision-makers engage in a dialogue about the possibilities for
development and redevelopment, so that these ideas can be captured in the alternatives.
C. Conduct EC3 Workshop on Defining Alternative Plans (Staff; D&B). Decision-maker
input will be reviewed, and a "world cafe" style workshop will be held with the EC3
members to brainstorm about defining the alternatives, as well as performance measures that
will be used for their evaluation.
D. Define Preliminary Alternative Plans (D&B). Decision-maker and EC3 brainstorming
input will provide a foundation for the land use/transportation alternatives. A series of
alternative land use maps will be prepared. Alternatives could be structured around "themes,"
such as "core focus" or "distributed development." Items that have been conclusively
identified as critical to the community—such as open space—may be emphasized in all of the
alternatives, but the manner in which this is carried out may vary.
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Envision Carlsbad Phase 2: Draft Work Program
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The alternatives will be sufficiently developed to show the community and decision-makers
clear choices among major land use options. Alternatives will incorporate urban design
concepts and will explore land use arrangements, mixes, locations of centers and activities to
support neighborhood revitalization, promote livability, enhance sustainability, and help
achieve the core values. To the extent possible, alternatives information will be presented in
the form of maps, tables, and charts.
E. TAG Meeting. The TAG will meet to review the preliminary Alternative Plans, and
following which any needed revisions will be made before EC3 review.
F. Review Preliminary Plans with EC3 (Staff; D&B). The preliminary Alternative Plans will
be reviewed with EC3 in a workshop-like setting, and following this meeting, finalized.
G. Evaluate Alternative Plans. Impacts of the plans will be quantified. Relative merits and
disadvantages of the alternatives will be assessed, based on how well they reflect the core
values of the Vision. For each core value, performance criteria will be selected from readily
available and accepted sources, recognizing that not all core values lend themselves to
objective assessment. However, quantitative measures related to several topics—
transportation, land use, population, housing, employment, greenhouse gases, environmental,
and fiscal—will be compiled and presented to enable informed discussion and decision-
making. The emphasis of the evaluation will be on succinct, understandable information, with
use of tables and charts, rather than large volumes of technical analysis and text. Evaluation
topics will include:
• Land Use, Population, and Employment (D&B). Comparative impacts in terms of
population, housing, and jobs, and compliance with Growth Management Proposition E
will be prepared for presentation in narrative and tabular form.
• Transportation (F&P). Traffic forecasts will be prepared for the alternative land use
scenarios. Trip generation estimates will be prepared for the land use growth anticipated
under the alternative land use scenarios. Future trips will be distributed and assigned to
the street system. City wide transportation measures such as vehicle miles traveled, hours
of delay, and numbers of trips generated will be calculated for each of the three
alternatives and will be used to assist in comparing and contrasting the effects of the
alternatives. Differences on impacts on pedestrian and bicycle movement will be
analyzed.
• Livability/Smart Growth (D&B, F&P support). Impacts of the alternatives will be
evaluated at a quantitative level (for traffic, walkability/access to stores and open space,
jobs/housing balance, etc.), and qualitatively where appropriate. These criteria will be
developed in conjunction with staff.
• Fiscal Model and Evaluation (RSG). Using the City's operating budget, the capital
improvement program (CIP), and the development impact fee program (it is anticipated
that the operating budget and CIP will be for the adopted 2010/11 budgets, and the
development impact fee program will be the most current), RSG will identify municipal
costs and revenue factors, and development impact fee rates, and use these factors, as
well as other information provided by the City, in preparing a long-range General Fund
fiscal impact model. The model will provide projections of department-level revenues
and expenditures over the time period of the General Plan under a base case (i.e.,
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continuation of current trends) and a reasonable number of alternative scenarios. RSG
will then identify resulting municipal revenues, municipal service costs (public safety,
recreation, development services, and general government), and development impact fees
associated with each land use proposal. Once the model is oriented with City of Carlsbad
specific factors, RSG will then test various land use alternatives based upon the land use
option proposals. In order to provide a comprehensive understanding of municipal
revenues and expenses, RSG will also input existing developed land use data provided by
D&B and establish baseline revenue and expenditure forecasts for those lands uses that
are not anticipated to change or to be significantly redeveloped, during the planning
period used in the General Plan update. RSG will consider presenting the fiscal analysis
results in a format similar to the annual 10-year forecast for the General Fund, with which
the City Council is already familiar.
• Environmental (Dudek, D&B). Impacts of the alternatives on environmental resources
will be evaluated, including natural resource communities, quantification of greenhouse
gas emissions, and potential safety conflicts such as with airport land uses.
H. TAC Review of Draft Alternative Plans Report. The TAC will review the Alternative
Plans Report before public review.
I. Prepare Final Alternative Plans Report (D&B). The alternatives, their organizing
principles, as well as the evaluation, will be summarized in a working paper. Following staff
and TAC review of an administrative draft, the Alternatives Plan report for will be prepared,
which will be review by the public during Task 3.
Meetings: Development Stakeholders Workshops/Forums (2)
City Council/Planning Commission Workshops to Brainstorm on Alternatives
ECS Workshops (2)
TAC Meetings (2)
Products: Preliminary Alternative Plans
Fiscal Model
Workshop Materials on Alternatives
Alternative Plans Report
TASK 3;
In this task, a Preferred Plan will be developed and refined in collaboration with the community
and decision-makers. Choices and tradeoffs will be discussed with the public during community
workshops. The selection of a Preferred Plan will create a framework within which new policy
language can be developed for the General Plan. Much of the focus of choosing a Preferred Plan
will revolve around the Vision and other major issues identified such as economic sustainability
and growth, and achieving a self-sustaining mix of land uses. Additionally, framework concepts
or key goals for the individual elements of the General Plan will be developed to provide a bridge
to detailed policy-making.
Staff Role: Much of the initial work on this task will be outreach to the community at large, as
well as organizations, to get feedback on the alternatives and direction for a Preferred Plan. This
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outreach will largely be a staff-led effort, with consultant support on the four citywide community
workshops, as well as a community survey. The consultant team will summarize results of the
four community workshops and the community survey; staff will be responsible for correlating
this with feedback from other groups and organizations, and providing a unified direction on
Preferred Plan.
A. Prepare Newsletter on Planning Alternatives (D&B). This newsletter will summarize the
key alternatives being considered for the General Plan, and could be combined with the
survey. Opportunities for public input will also be included. The City will be responsible for
printing and mailing.
B. Citywide Workshop on Alternatives (D&B, Team). City staff and consultant team will
lead four community workshops (one in each zip code) to discuss and compare the alternative
plans. The format for the public workshop will be reviewed with City staff, but is likely to be
small groups focused on specific issues, who then present their findings and preferences to
others in an open forum. This format will also allow the ECS/decision-makers to gauge public
reaction before decisions are made. Community-specific issues can be addressed in targeted
discussions with area residents or with specific groups by City staff.
C. Survey and Web-Based Feedback (BWR; D&B support). Along with the newsletter
(Subtask 3.A above) a mail-in survey will be sent to obtain community feedback on
alternatives. In addition to the overall alternatives, the survey may ask community members
specific questions about individual components (such as parks) or about specific Focus Areas.
Web-based technology, such as an online survey, UserVoice voting, or other feedback tool—
will also be explored. The ECS will have the opportunity to review and comment on the
survey tool prior to distribution. Results of the survey will be coded and analyzed. Three
options for conducting this survey are presented below by BWR, with cost comparisons.
Option 1: Representative Sampling
This option would provide a representative sampling of Carlsbad residents from an n=400
(+/- 4.88% margin of error, given a 95% level of confidence) to n=800 (+/- 3.44% margin of
error, given a 95% level of confidence) residents of Carlsbad. This sample would represent
the City's population by age, ethnicity, geographic distribution (zip code) and gender. This
could be done using phone and online surveys. If the survey requires visual cues, a sampling
of surveys can be mailed and/or emailed with phone follow-ups and recruitment.
• Advantages: This approach is the most reliable in gathering a sample that accurately
reflects Carlsbad's resident population.
• Disadvantages: This approach will not give every resident the opportunity to provide
their feedback.
• Research Fee Estimate: n=400, $19,725; n=600, $23,825. This would include survey
design, pre-testing, all data collection costs, data analysis and a written report.
• Additional Costs: None
Option 2: Limited Census Approach
This option would begin with sending a postcard to every resident to complete an online
survey or call a 1-800 number to receive a mail version of the survey. After the initial wave
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of completed surveys have been gathered, BWR would sample those residents that were
under-represented after the initial wave of completed surveys.
• Advantages: This approach provides all households with mailing addresses the
opportunity to participate in the survey, but most of the research resources are put
towards developing a representative sample that accurately reflects Carlsbad's entire
population.
• Disadvantages: This approach will take more time than Option 1, extending out the time
allocated for community feedback on alternatives, unless oversampling of likely
underrepresented population groups (such as younger people) is done at the outset in
anticipation.
• Research Fee Estimate: n=600 (a minimum of 600, likely to be more based on online
participation) $21,895. This would include survey design, pre-testing, all data collection
costs, data analysis, and a written report.
• Additional Costs: Cost of mailing out a postcard to all residents.
Option 3: Full Census Approach (Staff-Preferred Approach)
This option would be similar to the approach done in the first phase of Envision Carlsbad,
where the survey was mailed out to all households. A variation could be to send out first a
postcard to increase the number of online completes and then mail out surveys to all residents
who did not complete an online survey; however, this two-step process will add to the time.
• Advantages: This approach provides all households with mailing addresses the
opportunity to participate in the survey.
• Disadvantages: While the overall number of completed surveys will be highest under
this approach, this approach is typically less representative as different sub-populations
have different levels of participation. This process uses more resources (paper, total costs,
including research fee and printing and postage; however, if done with a citywide
newsletter, then this will not be the case) and, if a two-step process (postcard, followed
by a mail survey) is used, takes more time than the other approaches.
• Research Fee Estimate: $12,500. This would include survey design, pre-testing, data
analysis, and a written report. Depending on the length of the survey and the number of
open-ended questions, BWR would charge .75 cents to $1.50 for each mail survey that is
returned and processed.
• Additional Costs: Costs of mailing postcards and/or surveys to all residents (however, if
combined with newsletter on alternatives, additional cost will be minimal).
D. City Council/Planning Commission Briefing on Alternatives and Community Feedback
(D&B, Team). Decision-makers will be briefed on the alternatives, their impacts, and
community reaction to them, so decision-makers can weigh in or provide specific direction to
the EC3 should they so desire.
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E. EC3 Meeting on Defining Preferred Plan (D&B). Community feedback on the alternatives
and decision-maker briefing (subtask D) will be used as the basis for the Preferred Plan,
which will be defined in an interactive working session with the ECS. Much of the focus of
creating a Preferred Plan will revolve around implementing the Vision core values and
achieving a balanced mix of land uses based on identified need. All of the Focus Areas will
be systematically explored to make sure that in addition to buy-in into the big picture, there is
agreement on how this is carried out in individual areas. This discussion will also be used to
form key policies or "framework concepts" that will be translated into policies. The Preferred
Plan will consist of a land use/circulation diagram accompanied by a short description.
F. Prepare Policy and Framework Concepts (D&B, Team). Key goals or guiding policies
and "framework concepts"—short narrative text that will be later translated into goals and
policies—will be prepared in a memo format. These will synthesize information gathered to
date and assist EC3 members in bridging the gap between Preferred Plan and detailed policy
development.
G. Prepare Memo on General Plan/Local Coastal Program/Zoning Integration Structure
(D&B). This memo will encapsulate organization of the General Plan, LCP, and Zoning
Ordinance, in particular related to the legal requirements of the LCP. Critically, this memo
will define how the California Coastal Commission will use the LCP, and how the
organization of all three documents will ensure that the California Coastal Commission is
clear about which parts of the planning documents fall under their purview. Initial outlines of
the documents will be included.
H. TAC Meeting. The TAG will meet to review the preliminary Preferred Plan and the memo
on documents structure and integration, following which any needed revisions will be made
before EC3 review.
I. Review and Refine Preferred Plan and Key Goals with the EC3 (D&B; Team). The EC3
meeting (subtask E, above) will be used to prepare a Draft Preferred Plan. Development
resulting from this Preferred Plan will be quantified, and reviewed together with concepts and
key goals (from subtask F, above). It is likely that discussion of the Preferred Plan and the
key goals will be accomplished over two meetings. Overall structure of the documents
(General Plan, LCP, and Zoning Ordinance) will also be reviewed.
J. Present Draft Preferred Plan and Key Goals/Guiding Policies to Decision Makers
(D&B). The Preferred Plan and the goals will be presented and reviewed with the Planning
Commission/City Council. Choices and tradeoffs may also be discussed regarding the
integration of the General Plan, LCP, Zoning, and existing specific and master plans. City
Council acceptance of the Preferred Plan will establish the basis for formulating detailed Plan
policies.
K. Prepare Newsletter #2: Preferred Plan and Key Goals (City).
Meetings: Community workshops on alternatives (4)
EC3 Meetings on Preferred Plan and Key Policies (2)
City Council/Planning Commission (2)
TAC Meeting (J)
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Products: Newsletter #1: General Plan Alternatives
Workshop Materials
Community Survey, and Report on Community Survey Preferred Plan
Preferred Plan and Key Goals/Policies
Memo on GP/LCP/Zoning Integration Structure
Newsletter #2: Preferred Plan
TASK 4:
[For Housing Element, please see Task 5.J
Decision-maker approval of a Preferred Plan and key goals will establish a strong foundation to
build detailed General Plan policies. Balancing attention behveen text policies, the land use plan,
and the land use classifications is critical to a successful General Plan. Dyett & Bhatia will strive
for brevity^ and clarity that enables all interested persons to easily see what commitments the City
is making, what it hopes to accomplish, and whether a proposed project is consistent with the
Community Vision. We will include both "guiding policies" (or goals) and "implementing
policies," the latter forming a concrete, realistic, and feasible basis for implementing ordinances
or amendments to existing ordinances. Preparation of the Draft General Plan will be conducted
in parallel with the Draft E1R, so that any necessaiy mitigation can be folded into Plan policies
to ensure that the Plan is "self-mitigating. "
The Draft General Plan will be structured in such a way that the average citizen will find it
meaningful, useful, and understandable. Chapters may correspond closely with the Vision core
values or sustainability principles (environment, economy, equity), rather than using traditional
elements such as "land use" and "open space". In this case, compliance with State law
requirements for elements would be shown in a matrix form. A traditional elements approach
could also be used; decision on the appropriate structure and the General Plan outline will be
made as the final products from Task 3 (overall structure of the various documents, and key
General Plan goals) are being developed. Regardless, the General Plan will be structured to
implement the Vision and will reflect requirements for the State-mandated seven elements (Land
Use, Transportation, Safety, Conservation, Open Space, Noise, and Housing (see Task 5).
Consideration will be given to the formulation of "optional" elements which are permitted by
State law and which may help the General Plan achieve the Vision. In the outline provided below
based on the Vision core values, already represented are examples of "optional" elements
related to economic development, sustainability, and cultural resources. While short background
material will be provided as needed to set the stage for each element, the General Plan will
largely consist of goals and actionable policies (along with maps, photographs and illustrations,
as appropriate), rather than lengthy text on existing conditions. As policies are developed, ECS
input will be sought.
City Staff Role: City staff will provide policy input and direction to the consultant team, and will
be involved in reviewing and providing direction as EC3 review meetings are held, and when the
full Draft General Plan is compiled. City staff will also act as a liaison with various commissions
and other groups, as necessary, as policies are developed.
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A. Prepare Outline (D&B). A detailed outline for the General Plan (including a list of figures)
will be prepared and reviewed with City staff. Topics that will be covered in each chapter will
be identified, and a "mock-up" section will be prepared for staff approval.
B. Establish Plan Forecasts (D&B). Forecasts of land use and population changes that will
occur at General Plan horizon year (likely for horizon year 2035 or 2040) will be prepared.
C. Evaluate Transportation Improvements of Draft General Plan Land Uses (F&P). Using
the SANDAG travel demand model, F&P will use horizon year conditions traffic forecasts to
identify the roadway infrastructure needs to support future growth, while balancing needs of a
variety of modes.
D. Prepare Administrative Draft General Plan (Consultant Team). Each element of the
General Plan will include background information, goals and implementing policies, and
monitoring and evaluation requirements. The implementing policies constitute the General
Plan Implementation Program; however, these policies may be consolidated into a stand-
alone document/matrix for monitoring and evaluation purposes. For each element, meetings
with key figures from each department will be arranged as needed. A preliminary General
Plan structure, based on the Vision core values is described as follows (note: a different
General Plan structure may be chosen as discussed above).
• Small Town Feel, Beach Community Character, and Connectedness (including
Community Design). This element will serve to enhance Carlsbad's character, as well as
community engagement and connectedness. Drawings and illustrations will be prepared,
as appropriate, to illustrate concepts. This element will take into consideration:
- Overall city image, form, and identity (including role of mixed use);
- Integrating the beach and the community;
- Neighborhood connections;
- Design policies for key corridors, including streets and buildings;
- Enhancing social connectedness, including promoting a multi-generational
community;
- Promoting community engagement, connectedness, volunteerism, and philanthropy;
and
- Growth balance and management.
• Open Space and the Natural Environment This element will be designed to protect and
enhance Carlsbad's unique resources, and will be closely coordinated with the EIR
impact analysis. Any identified mitigations will be folded in as Plan policies. It will also
be closely coordinated with health and safety issues (including hazardous materials,
noise, and air quality), and will address issues related to environmental quality, laying out
criteria for development and accepted tolerance so there is no confusion of what is
consistent with the General Plan and what is not. Topics to be addressed include:
- Open space categories (use by people v only preservation);
- Habitat and biological resources conservation;
- Beaches, lagoons, and the ocean; drainage and erosion;
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- Agricultural resources;
- Soils;
- Water quality, watershed management, wastewater, and water conservation;
- Hazardous materials;
— Air quality;
- Greenhouse gases;
- Climate change; and
— Noise (including existing and future noise contours, airport noise impacts, and noise
standards).
Access to Recreation and Active, Healthy Lifestyles. This element will be closely
coordinated with the first two elements, and as well as the Transportation and
Connectivity Element. Included will be:
- Park and recreation system (including beaches and lagoons);
- Trails and connections;
- Park design and programming (maximizing use; designing for local population and
for expected population age distribution; overall system balance); and
- Key policies and programs for system enhancements, including new parks and open
space locations, and accessibility improvements.
The Local Economy, Business Diversity, and Tourism. This element will provide the
policy framework to ensure Carlsbad's long-term fiscal vibrancy, and economic
sustainability. Based on the analysis of recognized business trends and available
resources, and the Economic Development Strategy, it will outline the City's economic
development objectives, ensuring that economic decision-making is integrated with other
aspects of the city's development. Topics will include:
- Business Retention. Supporting business attraction, expansion, retention, and
improvement, for existing and new economic clusters;
- Economic Diversity. Supporting a diverse economy, ranging from small businesses to
cutting-edge establishments;
- Retail Sector. Expanding the retail sector, and promoting shopping and dining
opportunities;
- Tourism. Promoting tourism, and linking it with other aspects of the city's life; and
- Partnership. Supporting collaboration and partnerships with the business
community.
Walking, Biking, Public Transportation, and Connectivity. This element will
encompass the full range of transportation modes, including evaluation of major
roadways and an assessment of transit, pedestrian and bicycle corridors, and even the
airport. Topics will include:
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- Balanced/Multimodal Transportation System: Multimodal transportation levels of
service; Street classification system, reflecting multi-modal and urban design, rather
than simply automobile movement, considerations; Street improvements;
- Bicycle and Pedestrian Systems: Bicycle and pedestrian facility classification system,
including pedestrian priority areas (such as around schools or the Village); Proposed
bikeway and pedestrian system; Pedestrian access across the railroad tracks to the
beach;
- Automobile Circulation: Existing and planned operations; Signalization and signal
synchronization; Parking; and
— Public Transportation System: Proposed transit system and services, including
potential shuttles; priority transit service areas; pedestrian connections to public
transportation.
Sustainability. Because sustainability will be an overarching theme of the entire General
Plan update, this element will not duplicate what is included in other elements but will
provide clear cross references to other portions of the Plan to show how each of the
"three E's"—Environment, Economy, and Equity—are addressed throughout the
document. For instance, economic sustainability will be covered in the Local Economy,
Business Diversity, and Tourism Element, with easy cross-references provided here. The
Sustainability Element may feature some specific topics that do not fit neatly within other
elements, or which deserve additional elaboration here. These topics may include:
- Public/private/non-profit partnerships and relationships;
- Watershed/supply management overall (conservation, recycling, and desalination);
- Energy and climate change, including green building and sustainable site planning,
promotion of renewable energy;
- Healthy and sustainable food systems; and
- Waste reduction and recycling.
History, the Arts, and Cultural Resources. This element will outline strategies to
celebrate Carlsbad's history, cultural heritage, and promote arts. Topics will include:
- Historic preservation, including existing/proposed historic resources, as well as
strategies to enhance preservation and/or adaptive reuse;
- Art and cultural facilities; Performance space; Libraries; Museums; and
- Partnerships for new events programming and other cultural activities.
High Quality Education; Community Services and Safety. This element will provide the
structure for community services, including public safety, and partnerships with other
organizations involved in education. (Safety may be addressed in a separate element.)
Topics will include:
- Schools, higher education institutions, and learning centers;
- Community services (including nutrition, health, hospice);
- Housing needs of an aging population;
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- Fire services;
- Police services; and
- Emergency management, including fire hazards, aircraft hazards, and geologic and
seismic hazards.
• Neighborhood Revitalization and Livability. This element will provide direction for
rejuvenation of neighborhoods in the city's core, identify the location and intensity of
uses, and provide policies that would result in developments that are appropriate to the
character and setting. Proposition E Growth Management mandates will be
acknowledged. Topics in the element may include:
- Land use vision;
- Land use classifications; density/intensity standards (including land use map on the
city's parcel base);
- Connection to the Housing Element;
- Neighborhood(s) connectivity;
- Population and job holding capacity; jobs/housing balance;
- Detailed policies for Village revitalization;
- Detailed policies for Barrio Neighborhood;
- Detailed policies for Plaza Camino Real;
- Policies for new mixed-use areas;
- Policies for other areas, such as residential neighborhoods, office and business park
districts, and for amenities such as community gathering places;
- Financing sources and strategies such as sales tax, TOT, etc.; and
- Land use compatibility in the McClellan-Palomar Airport Influence Area consistent
with the Airport Land Use Compatibility Plan.
E. Implementation and Monitoring (D&B). The General Plan implementing policies will
constitute the Implementation Program for the General Plan. If so desired, these can be
assembled into an independent document/matrix, so implementation can be tracked and
programs easily prioritized. In addition, statutory requirements for annual General Plan
reports will be included. Major capital improvements resulting from the General Plan—parks,
streets/bikeways, water/wastewater system improvements—can also be compiled into a list,
so that the City can prioritize timing and improvements.
F. EC3 Meetings. Some policy issues must necessarily be considered and resolved during the
preparation of the General Plan. The EC3 will convene as needed (likely 3 meetings) to
provide the project team with planning policy direction.
G. TAC Meetings. It is likely that the TAC will meet several (potentially about four) times as
policies are developed and refined.
H. Prepare Public Review Draft General Plan. The Administrative Draft presented for staff
review will be revised after City staff provides a consolidated set of comments.
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Meetings: EC3 Meetings (3)
TAC Meetings (4)
Products: General Plan Outline
Administrative Draft General Plan
Draft General Plan
General Plan Land Use Map (CIS and Parcel Based)
TASK 5;
The objective of this task is to update the Carlsbad Housing Element in conjunction with the
update of the rest of the General Plan, ensuring that the element is fully integrated into the
General Plan and that the City stays in compliance with State housing law while meeting the
local challenges of smart growth, and density and growth management (Prop E).
Prior to the enactment of SB 375, cities and counties were required to revise their housing
elements every five years according to a staggered schedule by region. All regions have now
completed the fourth revision cycle to the housing element, and some regions are about to begin
the fifth revision cycle. In order to align the population projections used in the Regional Housing
Needs Assessment (RHNA) process with those used for transportation planning, and to
coordinate the RHNA allocation with the sustainable communities strategy of the RTF that an
MPO adopts every four years, SB 375 put housing elements in regions with an MPO on an eight-
year cycle. SB 375 established the due date for the fifth revision of housing elements within each
region at 18 months after the date of the first RTF adopted after September 30, 2010 and the due
date for the sixth and subsequent revision every eight years thereafter.
SB 575 clarifies that all local governments within the regional jurisdiction of the San Diego
Association of Governments must adopt the fifth revision of the housing element no later than 18
months after adoption of the first RTF update after September 30, 2010. To our knowledge, the
first RTF update in the SANDAG region after September 30, 2010, will occur no earlier than July
2011, making the fifth revision of the housing element due no later than approximately January
2013.
For the fifth revision, a local government within the jurisdiction of the San Diego Association of
Governments that has not adopted a housing element for the fourth revision by January 1, 2009
(Carlsbad falls into this category), shall revise its housing element not less than every four years,
unless the local government does both of the following: (a) adopts a housing element for the
fourth revision no later than March 31, 2010, which is in substantial compliance with this article
(done); and, (b) completes any rezoning contained in the housing element program for the fourth
revision by June 30, 2010. If Carlsbad is also in compliance with part (b), the fifth housing
element revision would be for a full eight-year cycle.
Given that the next housing element update is likely not due until January' 2013, D&B proposes
that the City aim to complete this Housing Element Update in tandem with the rest of the General
Plan Update, with the EIR on the General Plan serving as the environmental review document for
the Housing Element as well. Even assuming up to four months of hearings between completion
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of the Final EIR, certification, and the adoption of the Housing Element, this process should still
occur within 120 days of the statutory due date. If necessary, hearings on the Housing Element
could be "fast-tracked" ahead of other documents in order to ensure timely adoption.
City Staff Role: City staff will be responsible for providing information on accomplishments,
current and approved development housing projects, and available City housing funding
resources.
A. Technical Background and Needs Assessment (D&B). The assessment sub-task comprises
a technical update of background information/housing needs assessment, constraints analysis,
and accomplishments review; review of SANDAG's estimates of the city's potential share of
regional housing need; and identification of opportunity sites for affordable housing and
assessment of overall residential buildout.
• Needs Assessment. The current 2005-2010 Carlsbad Housing Element contains 1990 and
2000 Census data describing the city's population and housing stock in general. Other
sources, such as 2005 Department of Finance data for household demographics and 2007
California Association of Realtors data for housing market information were also used.
The Housing Needs Assessment Chapter of the Housing Element will be updated with
the most the current data available. The 2010 Census is the first census to eliminate the
long-form questionnaire. The basic, 10-question short-form data will be available in
December 2010. In lieu of long-form data, more detailed information will be gathered
exclusively through the Census Bureau's American Community Survey. For sizable cities
such as Carlsbad, yearly statistical estimates will be available.
• Constraints Analysis. A number of factors may constrain the development of housing,
particularly housing affordable to lower income households. These factors can generally
be divided into "governmental constraints," those that are controlled by federal, state, or
local governments, and "nongovernmental constraints," factors that are not generally
created by or cannot be affected by the government. Examples of potential governmental
constraints include development impact fees and provisions of the zoning code. Potential
nongovernmental constraints include national economic trends and direct construction
materials costs. The constraints analysis will thus provide detailed information about the
current costs associated with the provision of affordable housing, from both developer
and city government perspectives, as well as the anticipated future costs after accounting
for changes in state and local law, land availability, and other economic factors.
• Accomplishments Review. The current Housing Element will be reviewed for
accomplishments since 2005. The review will assist in developing new programs and
policies. This latter effort will be a City staff responsibility, using an evaluation matrix
prepared by D&B.
• Legislative Update. New State laws enacted since 2005 will be critically evaluated, and a
comprehensive review of the City's policies and regulations undertaken to ensure that no
illegal constraints on housing are listed in City code. The new legislation covers issues
such as ensuring adequate housing for extremely low-income households, by right
allowance of second-units, identifying a zone or zones for emergency shelters and
increased attention toward housing for persons with disabilities. Notably, SB 375 (2008)
and its Sustainable Communities Strategy (SCS) coordinates land use and transportation
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planning to reduce greenhouse gases. One of the key provisions sought by the League of
California Cities was to require that planning for housing be consistent with land use
planning for greenhouse gas reduction. However, for San Diego County jurisdictions, SB
375 requirements do not go into effect until the next housing element cycle (6th RHNA
revision).
• Housing Stakeholder Group Meetings (Six Meetings in One Day). State housing law
requires that communities specifically reach out to groups most affected by housing
supply and cost, such as the disabled, elderly, large households, and homeless. D&B will
hold six meetings with stakeholders/organizations representing some of these or similar
populations over a period of one day. Housing developers in Carlsbad could be included
as well in one or two sessions. City staff will identify, contact, and organize these groups.
D&B will present the background of Housing Element law and Carlsbad's known issues,
and ask the small groups about their main concerns and proposed solutions. If necessary,
City staff will host additional outreach meetings with other affected populations and
communicate what was heard to D&B for use in developing the Element.
B. Housing Sites and RHNA (D&B). The process for the new Housing Element will need to
interrelate with SANDAG's schedule for assessing and assigning residential development
targets as a part of the new RHNA. The Housing Element and Land Use Element updates
must be coordinated to accommodate this new RHNA. The implications, if any, of
Proposition E will be explored. D&B will coordinate with the General Plan update program
to ensure appropriate residential land use designations and intensities are available to
"facilitate and encourage a variety of housing types" that address the needs of all segments of
the community, pursuant to State law. Opportunity sites and growth areas will be discussed
and explored.
C. Element Preparation (D&B). The new Housing Element will use a format that is consistent
with the overall General Plan. As the Preferred Plan for the General Plan will be finalized in
June 2011, the Housing Element preparation process can kick-off at this time, in order to
coordinate land use planning with housing sites analysis. Work on the housing sites,
constraints, accomplishments, and programs chapters will follow and be completed by late
2011 or early 2012.
Housing needs data can be collected and the chapters that cover housing needs, in general,
and special needs, in particular, could be initiated as soon as authorized, in summer 2010.
However, given the recent adoption of the current Element and the fact that more current
demographic data from the Census Bureau will not be available until early 2011, it makes
sense to wait to start work on these two chapters.
D&B will assess the City's current housing programs in light of the Vision, and the emerging
Preferred Plan and General Plan key goals. City staff will provide information on whether
existing programs have already been completed, which ones are working well and should be
carried forward, and which ones need to be refined, redefined, or dropped. As a result of
these analyses, new housing programs needed to meet the housing needs for the City will be
identified. Any new housing program must be consistent with the community Vision
established in the General Plan update process. However, given the recent nature of the
current Element, many of the same programs will likely be retained. For each housing
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program proposed for the updated Housing Element, D&B will define and quantify its
objectives (number of units to be produced in a specified timeframe by income group).
D&B will ensure new housing goals and policies reflect the community Vision and that
internal consistency is achieved among the General Plan elements.
An Administrative Draft will be prepared and then revised based on a consolidated set of City
staff comments. The Draft Element will then be presented to the Planning Commission for
review and comments prior HCD review.
• Community Outreach. Development of a Housing Element that responds to community
needs and receives community acceptance requires significant public input. In addition to
opportunities to explore housing issues at other forums held in conjunction with the
General Plan, one community workshop focused on housing will be held; this could be in
form of a "housing summit". Additionally questions pertaining to housing can be
included as part of the survey on the alternatives.
• Administrative Draft Housing Element. Based on the assessment of housing needs,
constraints, and opportunities, as well as past accomplishments, the current Housing
Element will be comprehensively revised to:
- Inventory housing resources and constraints, including analysis of population and
household characteristics and needs, land availability, governmental and non-
governmental constraints, special housing needs, energy conservation opportunities,
and existing subsidized housing at risk of converting to market-rate housing;
- Demonstrate site development capacity equivalent to, or exceeding, the projected
housing need in the RHNA;
- Make available sites at adequate densities and development standards to facilitate and
encourage a variety of housing types for all socioeconomic segments of the
community, including those with special needs;
- Improve and preserve the city's existing affordable housing stock;
- Facilitate and encourage the provision of new affordable housing to meet the needs of
low and moderate income households;
- Work to maintain the small town residential feel of existing neighborhoods;
— Review the previous element's goals, objectives, policies, and programs; compare the
previous element's projections against actual achievement; and describe how the
goals, objectives, policies, and programs in the updated element have been changed
to incorporate lessons learned;
- Describe how the City made a diligent effort to achieve public participation from all
economic segments of the community in the development of the Housing Element;
- Estimate the funds expected to accrue to the Redevelopment Agency's Low- and
Moderate-Income Housing Fund during the planning period, and describe the
planned uses for those funds;
- Create a five-year schedule of actions to achieve the goals and objectives of the
Housing Element;
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Envision Carlsbad Phase 2: Draft Work Program
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- Quantify the objectives by income level for the construction, rehabilitation, and
conservation of affordable housing;
- Ensure policies and programs actively mitigate constraints to the development,
improvement, and preservation of housing and promote equal housing opportunity.
The document will include maps showing the location of sites identified to meet the
City's housing allocation. The sites maps will be created using GIS data already
possessed by D&B from the General Plan update project.
• Draft Housing Element. The Administrative Draft will be submitted to City staff and
then revised based on a consolidated set of staff comments.
• EC3 Meeting (1). Certain Housing Element discussions should be brought before the
ECS and/or decision-makers. Meetings will discuss the following topics: introduction to
Housing Element law and requirements; review of housing needs; review of housing
constraints; relationship between RHNA and sites inventory; housing goals and policies;
and review of the draft Housing Element. The ECS and the community should also be
afforded the opportunity to discuss topics that may be controversial such as affordable
housing policies and opportunity areas for affordable and higher density housing.
• Commission/City Council Review (2). The Draft Element will then be presented to the
Housing and Planning commissions and the City Council for review and comment prior
HCD review.
• HCD Review Draft. Following the Housing/Planning Commission and City Council
review, the HCD Review Draft will be prepared.
D. HCD Review. The Draft Housing Element shall be submitted to HCD for review, with the
goal of gaining certification on the first iteration, but understanding that this is uncommon.
Consequently, this task could include two rounds of HCD review (60 days apiece). If
required, a second HCD Review Draft, with revisions in underline/strikeout format will be
prepared. D&B will be responsible for further revisions to the Element to address HCD
comments. All revisions will be prepared in underline/strikeout format. The budget assumes
one round of revisions and resubmission to HCD.
E. Hearing Draft Housing Element. Following HCD review, the Hearing Draft of the Housing
Element will be prepared. Hearings on the Housing Element will be combined with hearings
of the other public review documents.
Meetings: Meetings with Housing Stakeholders (1 day of meetings)
Community Workshops (1)
EC3 Meeting (1)
Housing Commission (1)
Planning Commission (1)
City Council (I)
Product: Administrative Draft Housing Element
HCD Review Draft Housing Element
Hearing Draft Housing Element
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6; LOCAL COASTAL
The objective of this task is to prepare an updated Local Coastal Program (LCP). The Preferred
Plan, vision, and goals for the coastal zone will be developed in concert with those of the entire
city, and background data on the coastal zone will be collected simultaneously and fully
integrated with the rest of the data forming the foundation of the General Plan. The LCP land use
plan may be prepared as a separate document or may be incorporated into the General Plan as a
separate element. The Zoning Ordinance update, described in Task 7, will serve as the update to
the LCP implementing ordinance. The LCP update will reduce redundancy, clearly delineate the
coastal zone and implementing responsibilities, and provide a centralized navigational source for
applicable policies and implementation actions. Our approach is flexible and will be refined after
consultation with City and Coastal Commission staff. The goals of the updated LCP will be to:
• Maintain consistency with-Coastal Act requirements;
• Connect Coastal Act requirements to the Vision core values;
• Streamline the LCP by consolidating all LCP segments into a single program;
• Maintain consistency with Habitat Management Plan requirements;
• Clearly delineate roles and responsibilities of different agencies;
• Clearly define categorical exclusions from coastal development permit requirements; and
• Help the City to obtain coastal development permit authority for areas of deferred
certification (such as the Agua Hedionda Lagoon LCP Segment).
Staff Role: City staff will review memorandums and draft products, coordinate with Coastal
Commission staff (with consultant participation as needed), and attend Coastal Commission
hearings.
A. Framing the LCP Update (D&B).
• Detailed Structure and Organizational Options. The integration structure memo (from
Task 3) will be reviewed and expanded if necessary to detail out the LCP update
requirements and organizational options.
• Coastal Commission Consultation. D&B and City staff will meet with Coastal
Commission staff for consultation on the City's proposed approach to the LCP update—
both the LCP Land Use Plan and the Implementation Plan—and to identify issues they
may have about the update process and proposed format for LCP amendments. While
consultants will attend one in-person consultation, City Staff will coordinate with the
Coastal Commission to ensure ongoing involvement in the development of the LCP, and
consultants will maintain contact with Costal Commission staff through email and
conference calls as necessary.
• LCP Annotated Outline. Based on City and Coastal Commission staff comments on the
issues and options memo, D&B will prepare an annotated outline of the LCP update,
addressing both the LCP Land Use Plan and Implementation Plan. We will review the
draft outline with staff and revise, based on comments received.
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B. TAG Meeting. The TAG will meet to review the Annotated Outline and provide feedback.
C. LCP Land Use Plan Amendments (D&B). D&B will prepare a draft LCP Land Use Plan
Amendments based on the Preferred Plan, framework concepts, and key goals established in
Task 3, and working drafts of General Plan elements. Policies will be written to implement
the Coastal Act in a manner consistent with the Vision core values, and provide the
foundation for implementation plan (which will be incorporated as part of the Zoning
Ordinance). Graphics will clearly delineate the Coastal Zone and the Coastal Appealable
Zone and the City's land use designations within these zones. We will review the draft LCP
Land Use Plan Amendments with City staff and revise based on City staff comments.
D. LCP Implementation Plan (D&B). D&B will prepare a draft LCP Implementation Plan as
part of the Zoning Ordinance update described in Task 7. This scope of work assumes that
while Chapters 15.12, 15.16, and 18.48 of the Municipal Code are also part of the LCP
Implementation Plan, they do not need to be comprehensively updated. City staff will ensure
consistency between the new LCP Implementation Plan and these chapters. We will review
the draft LCP Implementation Plan with City staff and revise, based on City staff comments.
E. EC3 Review (D&B). The EC3 will review the proposed LCP at one or two meetings.
F. Final Plan and Certification (D&B).
G. Public Review Process Preparation. D&B will assist City staff to prepare for the public
review process, including summary materials on the Draft LCP for use in staff reports; public
workshops and hearings; and briefings for key interest groups. It is assumed the LCP will be
included in the Planning Commission and City Council hearing process for the General Plan
and Zoning Ordinance. Planning Commission and City Council hearings on the LCP will be
held and attended concurrent with those for the General Plan and Zoning Ordinance Update.
• Coastal Commission Submission. Based on City Council action and final text changes
provided by City staff, we will prepare the final LCP for submission to the California
Coastal Commission for certification.
• Coastal Commission Hearings. See Task 10.
Meetings: LCP update consultation with Coastal Commission staff
TAC Meeting (1)
EC3 Meeting (1)
Planning Commission Meeting (1)
City Council Meeting (1)
Products: Memo on Structure and Organizational Options
Annotated Outline
LCP Land Use Plan Amendments
LCP Implementation Plan
LCP Maps (Land Use and Zoning)
Final Local Coastal Program for submission to the Coastal Commission
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7; AND
objective of this task is to ensure the consistency of existing master, specific and other area
plans with the updated General Plan and LCP. In this task, existing master, specific and other
area plans will be evaluated for consistency with the updated General Plan (and the LCP). Based
on this evaluation, the plans will either be amended or consolidated into the General
Plan/LCP /Zoning Ordinance. The evaluation will need to occur in parallel with the preparation
of the General Plan and other documents, so any needed information can be folded into them.
Staff Role: This task will be primarily a staff driven effort, with consultant support on mapping
and document design.
A. Screening and Disposition. All of the master, specific, and area plans will be evaluated for
consistency with the Draft General Plan. As a first step, plans will be reviewed to ascertain:
• Whether policies have been implemented, and a master, specific, or area plan is no longer
needed.
• If some specific policies or regulations are needed, if these should be maintained in a
separate plan or folded into the General Plan or the Zoning Ordinance.
• A preliminary list of plans that will be evaluated includes:
Master Plans Specific Plans
La Costa Master Plan
Rancho Carrillo
Bressi Ranch
La Costa Resort & Spa Master Plan
Villages of La Costa
Robertson Ranch
Aviara
Hosp Grove Master Plan
Larwin (Tiburon)
Calavera Hills
El Camino Portals
Carlsbad Palisades
Pacesetter Homes
Batiquitos Lagoon Education Park I
Green Valley
La Costa Annexation
Rancho Del Ponderosa
Arroyo La Costa
Poinsettia Shores
Encinas Specific Plan
Paseo Del Norte (COC)
Occidental Land Co.
Carlsbad Land Investors
College Business Park
La Costa Downs
Carlsbad Airport Business Park
Zone 20 Specific Plan
Carlsbad Ranch Specific Plan
Levante Street
Poinsettia Properties
Carlsbad Oaks North
Carlsbad Research Center
Carlsbad Airport Center
Mabee, John
Sea Gate Associates
Dos Colinas
Car Country
Local Facilities Management Plans
B. TAG Meeting. The TAC will meet to discuss any issues regarding use of the
master/specific/area plans by other departments.
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C. Stakeholder Meetings. Stakeholders who use the existing master, specific, and other area
plans will be invited to give their input at a stakeholder meeting.
D. Consistency Evaluation and Update. For plans that will be maintained as stand-alone
documents, all policies will be reviewed for General Plan consistency, redundancy, and
obsolescence. Appropriate policies, proposals, and maps and diagrams will be updated.
E. ECS Meeting. A summary of proposed changes to the master, specific, and other area plans
will be presented to the EC3, and their feedback solicited.
F. Hearing Draft Master, Specific, and Area Plan Updates. Hearing drafts of these
documents will be prepared. Because these documents are being updated simply for
consistency with the General Plan, no decision-maker review preceding the hearing drafts is
anticipated. Note that the E1R on the General Plan and other documents would form the
environmental review document for these plan updates.
Meetings: TAC Meeting (1)
Stakeholder Meetings
ECS Meeting (1)
Products: Updated Draft Master, Specific, and Area Plans
TASK 8: DRAFT
The purpose of this task will be to prepare a new Zoning Ordinance to implement the updated
General Plan, as well as prepare an easy to use and administer, modern, graphic enriched
document. With this in mind, our approach to a comprehensive update of the Carlsbad Zoning
Ordinance is to break down the project into major phases:
• Phase I — Diagnosis and Technical Analysis. Background studies, including technical
review, stakeholder interviews, and summary of issues to be addressed to implement the
new General Plan and respond to specific zoning issues of concern to City staff and
stakeholders.
• Phase II — Choices for New Zoning. Analysis of issues and options, and preparation of
an outline reflecting the framework for zoning that will implement the new General Plan.
This analysis will include ways of integrating the LCP Implementation Plan into the
Zoning Ordinance, as well as evaluation of the appropriateness for Carlsbad of different
kinds of ordinance, such as a form-based code.
• Phase III — Products. This phase includes drafting preliminary regulations to implement
the General Plan and other city policies, building on the approved outline and technical
revisions identified by City staff. Workshops on specific sections ("modules") of
preliminary regulations will be scheduled with the Planning Commission to provide
feedback to the consultant team. Then a public review draft will be prepared for hearings
and adoption.
• Phase IV - Hearings and Adopted Ordinance. This phase includes preparation of
presentation materials for hearings, as well as the adopted Ordinance.
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By moving from agreements on general approaches to the outline of specific regulations and then
agreements on modules, our work program involves City staff and the community in the update
process and generates a sense of ownership and commitment to the new regulations. Although
our work program is designed to address problems that may exist throughout the entire body of
current zoning regulations, the primary emphasis will be the preparation of a new code to
implement the new General Plan and to meet the requirements of State law.
One workshop with EC3, and four workshops with the Planning Commission will be held to
review issues and options, "modules" of preliminary regulations, and key initiatives. Hearings
for the Zoning Ordinance will be combined with those of the General Plan and the LCP.
Staff Role: Staff will participate actively in this process, providing a list of zoning issues to the
consultant, leading a tour focused on zoning issues, reviewing outlines, and the modules as they
are prepared.
A. Background Research; Stakeholders Interviews.
• General Plan Policy Matrix. Prepare a summary matrix of General Plan policies and
programs related to zoning and identify how they will be implemented: by use
regulations, development and design standards or guidelines, development review or
development incentives. Include a column in the matrix to allow for comments by and
questions to staff.
• Technical Review. Conduct a technical review of existing zoning regulations and other
applicable regulations such as the Airport Land Use Compatibility Plan. Review district
requirements, supplementary provisions, site development standards, parking and loading
requirements, sign regulations, administrative procedures for specific zoning approvals
and for administration of the ordinance (e.g. noticing, hearing, and appeal provisions;
project review and permit requirements; permit extension and amendment provisions;
enforcement and abatement; and zoning text and map amendments). Identify conflicts
with the General Plan and applicable requirements of State and federal law.
• District Review. Review the existing Zoning Map, the General Plan Land Use Diagram,
and other adopted policies and guidelines; discuss with staff the purpose of different Plan
designations and zoning districts, potential conflicts, and the City's approach to
identifying properties that may require rezoning. Develop districts that are intuitive,
relate to, and are consistent with General Plan land use designations.
• Zoning Issues (City staff). Prepare a list of technical zoning issues and a summary of the
types of variances granted and standard conditions imposed on various types of projects
for the past two to three years, based on a sample of applications reflecting conditions in
the city. City staff also will identify Coastal Zone regulatory issues (e.g. standards, public
access requirements, permitting problems). If certain types of variances are routinely
granted, it may be appropriate to re-write the applicable standard or zoning requirement
to avoid reliance on this procedure. This issues review will capitalize on previous
strategic review processes, stakeholder consultation, and reports generated by City staff.
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• Representative Projects (City staff). Assemble a representative set of project plans
showing the specific character of prior or expected development in the city for use in
reviewing how specific standards and design guidelines are applied or might need to be
modified to meet development objectives.
• Stakeholder Interview Guide. Design a stakeholder interview guide that includes
pertinent questions regarding zoning and parking regulations, development standards,
project review requirements, Coastal Zone issues, potential inconsistencies between
zoning and General Plan policies and regulations, enforcement issues, ease of
implementation, monitoring, public access, user friendliness and other pertinent issues
relative to the Zoning Ordinance, for use in conducting stakeholder interviews.
• Stakeholder Interviews, City Tour, and Kickoff Meeting. Prepare for and participate in
one or two days of stakeholder interviews, City staff, and city tour to be scheduled with a
Kickoff Meeting (one trip). City staff will be responsible for identifying and coordinating
interviews and meetings with stakeholders. Issues identified by stakeholders will be
classified and sorted to identify common themes. The city tour will focus on development
projects that illustrate zoning issues. We will compile photos of typical buildings and
street frontages for use in analyzing need for new standards or changes to existing
standards.
• Zoning Issues Memo. Prepare a technical memorandum summarizing zoning issues
raised in interviews and other meetings, discussions with City staff, policy analysis, and
consultant's review of the existing code. The memorandum will organize issues by topic,
including: districting; use regulations; development standards; and zoning administration
and propose options for dealing with these issues in the updated ordinance.
• Zoning Issues Memo Review. Review the memorandum with City staff in a conference
call and eliminate regulatory proposals and other options that have little chance of
acceptance or would be extremely difficult to administer. The revised list will provide the
basis for the Issues and Options memorandum that will be prepared for review by the
ECS in Subtask B.
• Zoning Ordinance Update Newsletter. Prepare content for a Zoning Ordinance Update
Newsletter, and produce in conjunction with city communications staff. This newsletter
will include a project description, schedule, opportunities for public involvement, and
contact information. It is assumed the City will be responsible for printing and mailing.
B. Issues and Options; Preliminary Outline.
• Issues and Options Memo. Based on technical review of the City's zoning regulations,
City staff comments, and stakeholders interview, prepare a short Issues and Options
memorandum that distills the key choices and presents the "big ideas" for consideration
by City staff, the Technical Advisory Committee and ECS—a new framework for zoning
controls for Carlsbad, including how to address LCP implementation requirements. An
administrative draft will be prepared for City staff review and then revised based on staff
comments.
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• Issues and Options Workshop with EC3 and Planning Commission. Prepare a
PowerPoint presentation for a joint EC3/Planning Commission workshop, including a list
of specific zoning issues in Carlsbad (e.g. diagrams of typical standards) and examples of
how peer communities may have resolved similar issues.
• Zoning Ordinance Annotated Outline. Based on City staff and EC3 comments on issues
and options, prepare an annotated outline of the zoning regulations with a "plain English"
commentary. The outline will lay out the basic structure of the Zoning Ordinance update
and will be in sufficient detail to indicate what changes will need to be made to current
regulations, including:
- Number, types, and purposes of base zoning districts;
- Overlay and special districts, and provisions for planned development;
— Applicability of form-based approaches;
- General purpose sections of the new ordinance, including definitions, provisions for
"use classifications," supplemental standards for certain specific uses applicable in
some or all districts, administration, and enforcement;
- The overall organization and numbering system, and procedures for amendments;
and
- Graphic illustrations of selected standards and guidelines and review procedures (by
title only).
• Annotated Outline Review. Review draft Outline with City staff; revise, based on
comments received. Once agreement is reached, re-organize the existing ordinance using
a digital file provided by the city to follow the chapter sequence for the new ordinance
and include comments on revisions needed. Include "placeholders" for new regulations.
C. Administrative Procedures.
• Evaluate Administrative Provisions. Evaluate existing administrative provisions for all
zoning decisions and identify opportunities for streamlining. Processes evaluated will
include: Use Permits, Coastal Development Permits, Variances, Site Development Plans,
Planned Development, interpretations, zoning text and map amendments; General Plan
amendments; appeals, and revocations of discretionary permits. Procedures for citizen
participation in the development review process also will be evaluated. Coastal Zone and
Coastal Development Permit procedures will be drafted "stand-alone" in order to
facilitate Coastal Commission review.
• Update Definitions. Update definitions, including appropriate illustrations, and rules for
measuring floor area ratios, and sign area and determining setbacks and encroachments,
as needed (definitions and rules for measuring building heights were recently updated).
Group like terms under headings to facilitate understanding of differences among terms
(e.g. lot types, lot lines, residential housing types, and street types). Prepare a summary
list of terms and cross-references for readers, similar to an index.
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Envision Carlsbad Phase 2: Draft Work Program
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Prepare Module #1: Zoning Administration. Prepare Module #1, Zoning
Administration, including proposed amendments to administrative provisions, definitions
and rules of measurement; review with City staff and revise, based on City staff
comments. Prepare a PowerPoint presentation and conduct a Planning Commission
workshop on this module.
D. Use Regulations.
Review Current Use Classifications. Evaluate merits of a "use classifications" system to
streamline zoning district use regulations. Prepare preliminary use classifications for City
staff review.
Evaluate Current Use Regulations. Evaluate current use regulations and identify
changes needed in permitted uses and conditional uses to implement the General Plan;
respond to staff and stakeholder concerns and the technical review, including such issues
as:
- Neighborhood-scale and land use compatibility;
- Limitations on auto-oriented development;
- "Protected" uses including wireless telecommunications, religious uses, and
residential facilities protected by federal and State law;
- "Flex space" for employment areas;
- Unique uses such as recreational services, personal services, etc.;
- Delineation of different kinds of open space or conservation areas;
- Coastal-related and Coastal-dependent uses; and
- Mixed-use development.
Evaluate Current Specific Use Standards. Evaluate current standards for specific uses,
including City staff concerns about "problem" uses and provisions that are inconsistent
with State and federal law. Recently updated ordinances (such as Adult Businesses and
the Nonconforming Buildings and Uses) will be reviewed and incorporated into the
update. Prepare a summary matrix of proposed use regulations for all districts for staff
review, including limitations and standards for special uses as well as incentives for uses
at infill locations. Limitations include supplemental standards and limitations related to
maximum size and intensity of use, location, hours of operation, setbacks and screening,
parking and loading locations, refuse collection, vehicular and solar access, screening of
mechanical equipment and outdoor storage, any special standards for noise and odors not
addressed by performance standards and accessory uses on residential properties
including recreational vehicle parking and storage, and home occupations. As part of this
sub-task, the Consultant may draft revisions to correct inconsistencies with State or
federal law. Some uses that may require particular consideration may include:
- Alcohol outlets;
- Auto dealerships and related "auto row" businesses;
- Wireless communication facilities;
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- Big box retail space;
- Childcare centers;
- Convenience stores;
- Fast food outlets;
- Houses of worship;
- Private schools;
- Recreational uses and services; and
- Recycling operations.
• Prepare Module 2: Use Regulations. Prepare Module #2: Use Regulations, including a
correspondence table comparing existing uses with proposed use classifications; revise
based on staff comments and prepare a PowerPoint presentation for a Planning
Commission workshop.
E. Development/Design Standards.
• Analyze Current Standards. Analyze current development standards and identify new or
revised standards and performance requirements such as:
- Base and maximum densities and FARs;
- Walls, screening, and fences;
- Height and bulk of residential additions and accessory structures;
- Height of non-residential development as well as build-to lines and envelopes, where
appropriate;
- Setback, streetscape and design standards;
- Outdoor open space for multi-family development;
- Buffers, walls, screening and fences, outdoor facilities and storage;
- Pedestrian circulation, particularly in new commercial centers;
— Public access in the Coastal Zone;
- Transitional requirements adjacent to residential districts and public uses (i.e.
maintaining residential compatibility); and
- Parking.
• Compile Photos. Compile additional photos of typical buildings and street frontages for
use in analyzing need for new standards or changes to existing standards. Review site
plans of representative projects.
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Envision Carlsbad Phase 2: Draft Work Program
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• Prepare Revised Standards. Prepare revised standards related to uses such as parking
lots, including parking lot landscaping and dimensional requirements, and supplemental
regulations for accessory structures, green buildings, landscaping and buffer-yards,
temporary uses, wireless communication facilities, signs (the substance of existing
provisions will be retained with amendments limited to those necessary to comply with
the most current legal decisions by the U.S. Supreme Court and U.S. District Courts of
Appeal and reorganization so the format is consistent with other chapters), and other uses
not previously addressed.
• Review and Update Housing Regulations. In close coordination with the Housing
Element update preparation, review housing-related policies and programs, including
density bonuses, affordable housing programs, and provisions for second units,
emergency shelters, community care facilities, and other special-needs housing types.
Consistent with the new Housing Element, update zoning provisions as needed to
implement adopted housing policies and to ensure compliance with State law.
• Prepare Module #3: Development/Design Standards. Prepare Module #3:
Development/Design Standards, including a summary matrix of proposed standards with
illustrations of new concepts; revise based on staff comments and prepare a PowerPoint
presentation and conduct Planning Commission workshop on this module.
F. Draft Ordinance.
• Administrative Draft. Review Planning Commission comments on draft modules and
prepare an Administrative Draft Zoning Ordinance for City staff review. A one- or two-
day work-session with City staff on the administrative draft will be scheduled to review
outstanding issues.
• TAC Meeting. The TAG will meet to discuss their review of the Administrative Draft of
the Zoning Ordinance.
• Public Review Draft. Based on a consolidated set of comments from City staff, prepare
the Public Review Draft Zoning Ordinance.
G. Draft Zoning Map.
• Administrative Draft Map. Prepare a map in GIS showing new districts (base and
overlay), using the City's existing zoning GIS layers and the new General Plan land use
designations as a starting point.
• Public Review Draft Map. Following City staff review, prepare revised map for public
review (release along with Public Review Draft Ordinance).
H. Public Review.
• Public Review Process Preparation, Assist City staff in preparing for the public review
process; summary materials on the Draft Ordinance for use in City staff reports; public
workshops and hearings materials; and briefings for key interest groups. A "comment
form" could be used to focus comments on specific sections of the text and allow
comments to be consolidated and responses prepared efficiently.
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Envision Carlsbad Phase 2: Draft Work Program
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• Response to Comments and Addenda. Assist City staff in establishing an approach to
responding to comments received on the Public Review Draft Zoning Ordinance.
Distinctions might be made between comments that address: 1) General Plan policies that
already have been established; 2) regulatory policies that would be considered by the City
Council; 3) regulatory provisions required to respond to State or federal law; and 4)
concerns that are beyond the scope of the Zoning Ordinance.
We will work with City staff to review the comments received, and to decide on an
approach to preparing any necessary addenda to the Draft for consideration by the City
Council.
• Adoption Hearings. Adoption hearings are included in Task 10.
Meetings: Kickoff staff meeting
City tour
Stakeholder interviews
EC3/Planning Commission Workshop on Issues and Options
City staff teleconference to review EC3 concerns and Annotated Outline
Planning Commission workshop on Module #1
Planning Commission workshop on Module #2
Planning Commission workshop on Module #3
TAG meeting on Administrative Draft Zoning Ordinance
Products: Matrix of General Plan policies related to zoning
Summary of issues from stakeholder interviews
Technical memorandum on zoning issues and options
Annotated Outline of Zoning Ordinance
Module #7: Zoning Administration—Administrative Draft and Final Version
Module #2: Use Regulations—Administrative Draft and Final Version
Module #3: Development/Design Standards—Administrative Draft and Final Version
Draft Zoning Ordinance and Map—Administrative Draft and Public Review Draft
TASK 9:
The objective of this task is to prepare a comprehensive Program Environmental Impact Report
(EIR). The EIR will fulfill CEQA requirements for environmental review of the updated General
Plan, LCP, Housing Element, Zoning Ordinance, and Master, Specific and Area Plan updates.
All of these together would be referred to as "the proposed Project. " Impact assessment will be
conducted parallel to Plan preparation so that identified mitigation can be built into the General
Plan and other documents, resulting in a "self mitigating" plan. The environmental assessment
•will utilize the most current guidelines for CEQA and for each issue area, including global
warming and greenhouse gases/climate change. The EIR will be prepared to take full advantage
of CEQA streamlining and tiering opportunities for future projects, whether in accordance with
provisions of SB 375 (PRC 2115), or other tiering and exemption provisions in CEQA. One EC3
meeting may be held to review new policies needed as a result of environmental analysis and
mitigation needs.
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Envision Carlsbad Phase 2: Draft Work Program
July/, 2010
Staff Role: Staff will be responsible for reviewing all products, circulating the Notice of
Preparation and the Draft EIR, being present at the Scoping Meeting (and conducting any
additional scoping meetings if desired), reviewing outlines and proposed thresholds of
significance, and reviewing draft documents and providing direction on mitigation measures.
A. Notice of Preparation and Scoping Process (D&B).
• NOP. D&B will prepare a Notice of Preparation for the EIR on the Carlsbad General
Plan, Housing Element, LCP, Zoning, and Master, Specific, and Area Plans Update.
Because it has been determined that an EIR will be prepared, an initial checklist may not
be prepared. City staff will be responsible for distributing the NOP to a comprehensive
list of responsible and trustee agencies and the public, consistent with CEQA noticing
requirements.
• Scoping Meeting. City staff will coordinate one public scoping meeting, including
sending out meeting notices and reserving appropriate facilities, and contacting resource
agency staff and inviting them to participate in the scoping meeting. D&B will facilitate
the meeting and will take notes on comments made by those attending. A summary
record of comments will be created using these notes for reference. Please note, that in
taking public and agency comments on the scope of the EIR, comments regarding
economic or social changes are generally not applicable. According to CEQA, "economic
or social change by itself shall not be considered a significant effect on the environment.
A social or economic change related to a physical change may be considered in
determining whether the physical change is significant." (CEQA Guidelines Section
15382, emphasis added).
• Memo on NOP and Scoping Comments. D&B will review the summary of public
comments and prepare a technical memo with recommendations on how to address these
comments in the EIR, subject to consultation with the City. One memo will be prepared
to cover both written comments and public scoping meeting verbal comments.
B. EIR Approach and Organization (D&B, Dudek, F&P). In cooperation with sub-
consultants, D&B will prepare a memo for City staff that will:
• Provide an outline of the EIR document;
• Identify required impact categories to be included in the EIR;
• Recommend significance thresholds criteria; and
• Recommend method of analysis for each impact category.
City staff will provide one consolidated set of comments to inform these components of the
EIR before analytical work gets underway.
C. Proposed Project and Alternatives Definitions (D&B). D&B will work with Staff to define
the major elements of the proposed Project and select a reasonable range of alternatives to the
proposed Project to be evaluated in the EIR. The City will likely consider the proposed
Project, the No Project Alternative, and two to three other project alternatives. The City, with
D&B assistance, will make an initial determination as to which alternatives are feasible and
merit in-depth consideration and which do not.
49
Envision Carlsbad Phase 2: Draft Work Program
July 7, 2010
D. EIR Settings and Impact Analysis (D&B, Dudek, F&P). The consultant team will prepare
the environmental settings (i.e., existing conditions) and impact analysis for each
environmental issue area using the most up-to-date literature, maps, databases, and other
resources as identified in Task 1. The setting information will provide the level of detail
needed for a programmatic assessment. D&B will ensure consistency of all issue area
sections using materials developed under Subtask B, as well as compliance with CEQA. The
issue area sections are as follows:
• Aesthetics. (D&B). D&B will prepare an assessment of visual resource and aesthetic
impacts of the proposed Project. The assessment will include: description of the regional
visual character and area-specific landscape viewshed units (which comprise the baseline
conditions for assessing aesthetic impacts); an overview of applicable policies and
guidelines regarding visual resources; an impact analysis that will focus on changes in
key public views, scenic corridors, and overall visual character resulting from changes to
the urban form; and recommendations and mitigation measures to lessen potential visual
impacts. The visual resources assessment will follow standards of professional practice
for aesthetic analysis.
• Air Quality (Dudek). The EIR will analyze impacts to local and regional air quality
associated with population growth and associated growth in vehicular traffic and energy
consumption due to residential and commercial development. Baseline (current) and
future (2035) mobile, stationary, and area source emissions will be estimated and the net
change will be compared to significance thresholds recommended by the San Diego Air
Pollution Control District. It is anticipated that URBEMIS2007 land use and air emission
model will be utilized with development levels and trip generation rates identified in the
traffic analysis. Potential air quality impacts associated with construction will be
evaluated qualitatively because those impacts tend to be site- and project-specific. The
EIR analysis will include a discussion of the project's consistency with plans and
strategies to meet ambient air quality standards for ozone and particulate matter, both of
which are nonattainment pollutants in the San Diego Air Basin. To assess the potential
for future development under the General Plan Update to result in local violations of
ambient air quality standards, Dudek also will address carbon monoxide (CO) "hot spots"
in a qualitative manner using background ambient air quality data and traffic data
provided in the traffic analysis. It is anticipated that the development under the General
Plan Update would result in a minor increase in traffic at impacted intersections and that
the General Plan Update will likely result in denser growth patterns, more transit use, and
include policies to reduce traffic congestion and associated CO hotspots.
• Biological Resources (Dudek). The results of the Open Space and Natural Environment
working paper and element will be incorporated into the EIR to analyze biological
resource impacts. This EIR section will include existing conditions, impact assessment,
and mitigation measures. The impact assessment will include an analysis of consistency
with all applicable regulatory documents, including but not limited to the HMP. Based on
input from City staff, Dudek will identify potential impacts to these resources resulting
from General Plan Update implementation and identify the policies and implementation
measures that address those impacts. Types of impacts to be evaluated include but are not
limited to habitat modification and fragmentation, wetlands impacts, impacts on species
50
Envision Carlsbad Phase 2: Draft Work Program
July?, 2010
migration patterns, and conflicts with existing plans or policies that protect biological
resources.
Energy', Greenhouse Gases, and Climate Change (Dudek). This section will include a
description of GHGs, global climate change and its potential impacts, along with a
description of the fundamental regulatory efforts that form the basis for both statewide
and local GHG emission reduction goals and efforts. Much of this discussion will be
available from the Sustainability paper. Dudek will present the estimated GHG emissions
for baseline and full buildout (2035) scenarios. It is expected that these inventories will
cover all of the sources recommended in the June 2008 technical guidance advisory from
the Governor's Office of Planning and Research. The technical advisory recommended
that CEQA documents include those emissions associated with motor vehicles, energy
(e.g., natural gas consumption, electrical generation) and water supply at a minimum. The
significance of the impacts will be assessed qualitatively (and quantitatively if thresholds
are available for the region) in terms of the consistency or conflicts of the General Plan
Update with the plans and strategies developed to achieve the goals of AB 32.
Geology, Soils, and Seismicity (Dudek). Existing literature regarding geology and coastal
bluffs will be summarized to address potential project-induced geologic impacts,
including seismic hazards, liquefaction, and landslides. Bluff failure policies for the
General Plan will be considered in the discussion. Project impacts on soil quality and
erosion will also be evaluated.
Hazardous Materials (Dudek). Dudek will provide an update to the hazardous materials
discussion found in the current General Plan, using existing available data. Topics
include hazardous materials spill prevention, and hazards risk assessment. Dudek will
also compile a database and G1S map of the clean-up, investigation, and underground
storage tank sites in the City, as listed on the Geotracker and Envirostor on-line
databases. Dudek will prioritize the sites with a ranking of 1-4, based on the extent of the
known or potential impact to environmental conditions (such as impacts to soil and
groundwater) in the City, with a value of 4 representing the greatest relative impact and a
value of 1 representing the lowest relative impact. The ranking will be based solely on
information obtained from Geotracker and Envirostor and from Dudek's current
knowledge of soil and groundwater contamination in the City based on past hazardous
waste/materials studies within the City. This scope does not include agency file reviews
for the sites that lack information in Geotracker and Envirostor. Dudek will prepare a
brief report summarizing the database, and also a map. Dudek's analysis will respond to
other hazardous materials concerns identified through the scoping process, which may
include high pressure gas lines, high voltage electrical wires, etc. Toxic air contaminants
would be assessed in the Air Quality section.
Historical, Archaeological, and Paleontological Resources (Dudek). The results of two
papers (Open Space and Natural Environment, and History, Arts and Cultural Resources)
will be incorporated into the EIR to analyze historical, archaeological, and
paleontological resource impacts. This EIR section will include existing conditions,
impact assessment, and mitigation measures. Based on input from City staff, Dudek will
identify potential impacts to these resources resulting from General Plan Update
implementation and identify the policies and implementation measures that address those
impacts.
51
Envision Carlsbad Phase 2: Draft Work Program
July?, 2010
• Hydrology and Flooding (Dudek). The EIR will address potential impacts to the City's
drainage infrastructure as well as surface water quality impacts to sensitive downstream
water bodies such as the Buena Vista, Batiquitos and Agua Hedionda lagoons, and the
Pacific Ocean. Best Management Practices (BMPs) identified in the Resource
Management Element that address the effects of development will be considered in the
analysis. Any revisions to the City's Municipal Code, which establishes the minimum
requirements for project construction standards and grading plans, will be described.
Flooding effects will also be evaluated in the EIR, particularly in flood-prone areas near
lagoons, and potential flooding impacts related to sea level rise.
• Land Use (D&B). Our analysis will address the recent and long-term trends in land use,
housing, and population within Carlsbad and San Diego County. The focus of the land
use analysis will be identifying whether proposed future land use patterns could
physically divide an established community or displace substantial numbers of existing
housing units or people (necessitating the construction of replacement housing
elsewhere), as well as potential conflicts with established land use plans, policies, or
regulations; and potential conflict with other applicable plans in adjacent cities. We will
evaluate potential impacts of the proposed Project on housing needs for low- and
moderate-income households and work to ensure that proposed policies adequately
address those impacts. It is expected that, to the extent feasible, potential land use
impacts will be mitigated by policies, programs, or objectives incorporated as a part of
the proposed Project itself.
• Noise (Dudek). The noise analysis will include a discussion of traffic noise and
compliance with the City's adopted Noise Ordinance for both short-term and long-term
noise impacts. Impacts relating to noise from traffic, rail, airport, and stationary sources
will be addressed. The airport noise analysis will be based on the recently-updated
Airport Land Use Compatibility Plan, and will utilize contours contained therein. Current
noise levels in the City from the above sources will be presented followed by a discussion
of forecasted future noise levels anticipated with buildout of the General Plan Update and
alternatives.
• Public Utilities and Infrastructure; Wastewater (Dudek). This section of the EIR will
evaluate potential impacts to water, wastewater, solid waste service, and utilities. Fire
safely and emergency response capacities will also be addressed. As part of the
discussion, existing water supply and providers will be identified, followed by an analysis
of water supply and demand based on anticipated buildout and population projection for
the General Plan Update, especially focused on infill areas. The analysis will rely on the
applicable Regional Urban Water Management Plan to evaluate water supplies and
demands. Required new connections to the water distribution system will be identified.
• Transportation (F&P). F&P will prepare a transportation impact analysis to evaluate
impacts of the final Preferred Plan on the surrounding transportation system. This effort
will identify deficiencies associated with the General Plan for the roadway, transit,
bicycle, pedestrian, aviation, rail, and goods movement components of the transportation
system. The significance criteria developed under Subtask B will be applied to identify
significant impacts to the transportation system. Feasible measures to mitigate project
impacts will be identified, as appropriate.
52
Envision Carlsbad Phase 2: Draft Work Program
July/, 2010
E. Alternatives Analysis and CEQA-required Conclusions (D&B, Dudek, F&P). These
sections of the Draft EIR will address specific findings required by CEQA, including:
• Alternatives Assessment and Environmentally Superior Alternative. Assessing the
environmental effects of the alternatives defined in Subtask C, in comparison to the
effects of the proposed Project for all identified impact categories. D&B will identify the
environmentally superior alternative. D&B also will prepare an easy-to-use matrix
displaying the impacts of each alternative to summarize the results of this analysis in the
Alternatives chapter.
• Significant and Unavoidable Impacts. This section will describe those significant
impacts that, despite feasible mitigation, cannot be reduced to a level of insignificance.
• Significant, Irreversible Environmental Changes. As required by CEQA Guidelines
Section 15126, the EIR will present information on the extent to which the project would
result in an irreversible commitment of environmental resources.
• Cumulative Impacts. Cumulative impacts refer to two or more individual impacts that,
when considered together, are considerable or that compound or increase other
environmental impacts. D&B will work with the City to develop the basis for the analysis
of cumulative impacts for the proposed Project. The "List Approach" will consider all
past, present, and probable future projects that could contribute to a significant
cumulative environmental impact, including planned developments under consideration
in the City, and other projects in the vicinity of the City. The "Projection Approach" will
consider development projections described in the County's General Plan as a basis for
regional conditions contributing to the cumulative impact. We anticipate using a
combination of the List Approach and the Projection Approach as appropriate for each
impact area. Some kinds of impacts, such as traffic, noise, air quality, and greenhouse
gases, are cumulative in nature and thus the analysis in each issue area section is likely to
be a cumulative impact analysis. In these instances, the cumulative impact section would
summarize those earlier analyses.
• Growth-Inducing Impacts. As required by State CEQA Guidelines Section 15126.2, the
EIR will assess the ways in which the proposed Project could, either directly or
indirectly, foster economic or population growth or the construction of additional
housing. D&B will consider the proposed Project in terms of both the region's long-range
growth projections and nature of proposed future development within the urbanized
setting. For example, D&B will examine the "balance" of jobs and housing that would
result from implementation of the proposed Project (the relationship between the
numbers, locations, and types of jobs and the locations, costs, and types of housing units).
The focus of this analysis and potential mitigation measures will be on the proximity of
jobs and housing and ensuring that, based on the income levels of likely workers,
affordable housing can be provided nearby for these workers. The EIR will also consider
the growth-inducing effects of any necessary expansion of public services and utilities in
order to accommodate the proposed Project.
• Impacts Found Not to Be Significant. Areas of potential environmental impact where no
significant impacts were identified will be summarized here. This will include a
discussion of the reasons that various possible significant effects of the project were
determined not to be significant and were therefore not discussed in detail in the EIR.
53
Envision Carlsbad Phase 2: Draft Work Program
July?, 2010
F. Administrative Draft EIR. The Administrative Draft EIR provides City Staff with its first
complete review copy of the Draft EIR. Subtasks C through E above describe the major
components of the Draft EIR—the project and alternatives definitions, the environmental
settings and impact analyses, and the CEQA-required conclusions. Additional sections of the
EIR that will be prepared as a part of the Administrative Draft submission include:
• Front Matter. The front matter will include the Cover, Title Page, EIR Preparers, Table
of Contents, and Lists of Tables and Figures.
• Executive Summary. The executive summary of the EIR is required by CEQA. The
executive summary will include abbreviated descriptions of the EIR purpose, methods
and major assumptions, project description and alternatives descriptions, alternatives
analysis major conclusions, including the Environmentally Superior Alternative, and any
areas of known controversy. A comprehensive table of impact statements, conclusions,
and mitigation measures will be provided at the end of the executive summary.
• Introduction, Organization, and Study Approach. This section will describe the
purpose, scope, and organization of the EIR; provide background information on the
NOP and public scoping process, participation, and describe any other consultation that
occurs in the course of the preparation of the EIR (e.g. tribal consultation); and describe
the overall approach, including timeframe, level of analysis, types of impacts, No Project
vs. proposed Project comparison, alternatives development and analysis, cumulative
impacts, relationship to other EIRs, and intended use of the EIR.
• Bibliography and Appendices. The Administrative Draft EIR will contain the following
information, including but not limited to that which is required by CEQA Guidelines
Section 15129: glossary, references cited by issue area, NOP and list of agencies and
persons contacted, NOP and scoping comments received, and any technical appendices
necessary (traffic studies, etc.). Dudek will be responsible for technical appendices for
their environmental issue areas, and F&P for technical appendices for transportation.
D&B will submit Administrative Draft EIR for City staff review. Comments from the City
will be provided as one consolidated set with discrepancies between staff comments resolved
prior to transmittal to D&B. This task includes in-house CEQA compliance review.
G. TAC Meeting. The TAC will meet at least once, focused on significant impacts and
mitigation measures identified.
H. Public Review Draft EIR/Notice of Completion. Following receipt of the City's comments
on the Administrative Draft EIR, D&B will work with City staff to determine the approach to
final changes. D&B will then work with Dudek and F&P to prepare the Public Review Draft
EIR, incorporating changes in response to the City's comments. D&B will prepare and
submit one copy of a "screen check" draft for fatal flaw review by City staff. Following one
final set of changes, D&B will produce the Public Review Draft EIR.
D&B will provide the City with 20 hard copies and a CD of the Draft EIR. City staff will
prepare and transmit the Notice of Completion to the State Clearinghouse. At this stage, D&B
also recommends that the City extend the NOC notification to the same agencies and
organizations that received the NOP.
54
Envision Carlsbad Phase 2: Draft Work Program
July/, 2010
I. Response to Comments and Final EIR (D&B, Dudek, F&P). This subtask will result in
the preparation of a Final EIR, which will contain a list of commentators, comment letters,
and responses to comments on the Draft EIR. Any changes to the Draft EIR text will be
marked with strikeout/underline formatting to show revisions [however, the entire Draft EIR
will not be republished]. Responses that are within the scope of work and budget consist of
explanations, elaborations, or clarifications of the data contained in the Draft EIR, as well as
minor corrections of background information. If substantive new analysis, issues,
alternatives, or project changes need to be addressed, or if the effort exceeds the budgeted
amount because of the number or complexity of responses, a contract amendment may be
required. The Final EIR proposed changes in response to public comments, and their
relevance to final revisions to the General Plan, will be presented to the Planning
Commission for their review and input prior to completing the Final EIR for certification.
J. (Optional) Support for EIR for Certification and Project Adoption.
• Findings, Facts in Support of Findings, and Statement of Overriding Considerations.
D&B can prepare findings and facts in support of findings for any significant impacts,
and a statement of overriding considerations for any significant impacts found to be
unavoidable (if applicable) as part of the EIR certification process. These documents
assist in the certification of the Final EIR and approval of the proposed Project. The
findings would be in compliance with Sections 21081 and 21081.5 of the California
Public Resources Code.
• Notice of Determination. D&B can also prepare and file the Notice of Determination
with the State Office of Planning and Research and the county clerk's office. The City
would be responsible for paying any filing fees associated with the EIR, though D&B
would provide the City with full information on the fees and would manage the filing
process.
It should be noted that because all feasible mitigation will be folded into the General Plan as
policy, a Mitigation Monitoring and Reporting Program is unlikely to be needed.
Meetings: Scoping Meeting
EC3 Meeting (optional)
TAC Meeting
Planning Commission Meeting
Products: Notice of Preparation
Memo on Scoping Comments
Working Paper on EIR Approach and Organization
Draft EIR Project Description and Alternatives Descriptions
Issue Sections? (Would the city want to review these once before the Admin draft?)
Admin Draft EIR
Public Review Draft EIR
Response to Comments and Final EIR
55
Envision Carlsbad Phase 2: Draft Work Program
July?, 2010
The objective of this task will be to take the Draft General Plan, LCP, Zoning Ordinance, Specific
Plan and Master Plan amendments, and the EIR through public review and hearings. Given the
large volume, of documents that may need to go through the review and adoption process,
decisions on streamlining and sequencing review (such as joint Planning Commission/City
Council information sessions, or sequencing zoning adoption after policy documents have been
completed) may need to be explored.
A. Prepare Newsletters 3 and 4 (City). Newsletter #4 will be completed prior to the hearings,
and will summarize the key features of the General Plan and other documents, and provide
the hearings schedule. Newsletter #3 will be prepared mid-point between #4 and #2
(Preferred Plan), to report on progress with the various planning documents.
B. Final EC3 Meeting. This will be a short celebratory meeting, where hearing drafts of all of
the documents will be available for EC3 review. This meeting could also be noticed as a
Planning Commission meeting, so Commissioners have an opportunity to be briefed on the
salient components of the various documents, as the process moves into hearings. A
community open house (see sub-task below) will follow the meeting.
C. Conduct Community Open House. Following a short presentation (immediately following
the EC3 meeting, in the same room) that provides an overview and hearing dates, a
community "open house" will be held, where copies of all documents will be available for
community review, and community members will be invited to ask questions and offer
comments at stations.
D. Adoption Hearings. Planning Commission and City Council must consider adoption of the
new General Plan, the Zoning Ordinance, the LCP, and the master, specific, and area plan
updates, and certification of the Final EIR, in public hearings, following the public review
period. Presentation materials for the hearings will be prepared. It is suggested that the first of
these hearings be a joint meeting of the Planning Commission and the City Council, Our
budget provides for attendance at four such hearings (as these will be staff-led).
E. Coastal Commission Hearings. D&B will attend two Coastal Commission hearings on the
LCP, and attend one preparatory meeting with Coastal Commission staff.
F. Adopted General Plan, Zoning Ordinance, LCP, and Master, Specific and Area Plans.
Adopted versions of these documents will be prepared, based on exact adopted map and text
changes.
G. Final Data Transfer. D&B will provide the City final GIS shape files for drawings prepared
in GIS, compatible with City GIS specs, especially parcel-based zoning and General Plan
Land Use and LCP policy maps. Final adoption file versions will be transmitted to the City
via CD, containing PDFs appropriate for printing, web publication, and distribution by CD
copies, and all of the final files will also be provided in their original, editable form,
compatible with City software.
56
Envision Carlsbad Phase 2: Draft Work Program
July?, 2010
H. Web-enabled General Plan and Zoning Ordinance (optional). The General Plan, as well
as other documents, will be designed to provide easy navigation, in hardcopy, and
electronically on the Internet. A PDF document will be designed and prepared with text,
images, and graphics for both print and web use. The document will be fully indexed, and
searchable and hyperlinked through a table of contents and index of topics.
• Custom Mapping. A dynamic web-based mapping product will be prepared through
ArclMS, that allows users to create custom maps, by managing data layers and searching
addresses from any standard web browser.
• Web-Based General Plan and Zoning Ordinance. Fully HTML coded General Plan and
Zoning Ordinance, to enable these to be used in an accessible manner on the Internet will
be prepared. Hyperlinks between the tables of content and the documents will be
established. Map and policy links will be established, which would require collating
policies that apply to certain areas (such as open space protected areas) and linking these
to a map. We would need to comb through and collate all General Plan policies that have
a spatial attribute and link them back to the maps. With the Zoning Ordinance, the zoning
text and map will be integrated. Search and tab capabilities will be included.
Meetings: ECS (final meeting)
Planning Commission Hearings (2 attended by consultants)
City Council Hearings (2 attended by consultant)
Meetings with Coastal Commission Staff
Coastal Commission Hearings (2)
Products: Newsletter 3 and 4
Adopted General Plan, LCP, Zoning Ordinance, and Associated Maps
Adopted Updated Master, Specific and Area Plans
Final CIS files
Web-enabled General Plan and Zoning Ordinance (optional)
57
Envision Carlsbad Phase 2: Draft Work Program
July?, 2010
The schedule proposed for Phase 2 is presented in a flow chart below on the following page. Key
products and meetings are also shown. We propose a 26-month schedule leading to public review
drafts of all products, with an additional 2.5 months for 45-day public review of the Draft EIR,
and preparation of the Final EIR. Thus, adoption hearings can commence after month 29; this
means that if the project commences August 2010, the Final EIR will be completed January 2013,
enabling hearings to commence by February 2013. Assuming two to four months of Planning
Commission, Coastal Commission, and City Council hearings, this represents a 30- to 32-month
schedule leading to adoption of all documents. The EC3's last meeting would be October 2012.
While the schedule can be tightened, given the volume of documents, number of reviewing
bodies, and community outreach, a schedule that is more aggressive may not provide adequate
time for informed discussion. With that stated, we believe this proposed schedule balances time
requirements for thorough analysis and public input opportunities with City needs for timely
project completion, and will enable EC3 to stay involved, interested, and supportive of the
various components of the project. We can, however, modify the schedule to meet City goals and
work around staff or decision-maker time constraints.
58
Envision Carlsbad Phase 2 Master Schedule
City of Carlsbad General Plan, LCP, and Zoning Ordinance Update
Issues in Depth Choices, Tradeoffs, and Key Decisions Draft Products Final Products
Tasks
1 Existing Conditions and
Issues Exploration
2 Plan and Policy
Alternatives
3 Preferred Plan
4 Draft General Plan
5 Housing Element
6 Draft LCP
7 Master Specific, and
Other Area Plans Update
8 Zoning Ordinance
Update
9 Environmental Review
10 Hearings and
Adoption
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1 Sustainability
2 The Local Economy, Business Diversity,
and Tourism
3 Open Space and the Natural Environment
Access to Recreation and Active, Healthy
Lifestyles
4 History, the Arts, Cultural Resources, High
Quality Education, Community Services
5 Walk ng, Biking, Public Transportation, an
Connectivity
6 Small Town Feel, Beach Community
Character, Connectedness, Neighborhood
Revitalization, Community Design, Livabilit
7 Preliminary Alternative Plans
8 Fiscal Model
9 Alternative Plans Report
10 Report on Community Survey
Preferred Plan
11 GP/LCP/Zoning Integration Structure
12 Preferred Plan and Key Goafs/Policies
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13 General Plan Outline
14 Admin Draft General Plan
15 Draft General Plan
16 Admin Draft Housing Element
17 HCD Review Draft Housing j
Element
18 Memo on Stucture and
Organizational Options
19 LCP Annotated Out ine
20 LCP Land Use Plan
21 LCP Implementation Plan
V 22 LCP for Coastal Commission
23 Updated Specific/Area Plans -
Zoning Ordinance:
24 Summary of Issues from
Stakeholder Interviews .s
25 Module 1
26 GP-Zoning Policy Matrix
27 Issues and Options Memo
28 Annotated Outline
29 Module 2
30 Module 3 ;•
31 Admin Draft Zoning Ordinance :.
32 Draft Zoning Ordinance
Em: \
33 Notice of Preparation :-
34 Memo on Scoping Comments
35 EIR Approach S Organization :'.
36 Project S Alternatives |!
Descriptions ..
37 Issue Sections
38 Admin DEIR
39 Public Review OEIR
40 FE1R
41-45 Adopted Documents
I I I
i Consultant Effort I Stakeholder Interview 1 Community Workshop/
Open House
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i Planning Commission/ ^ Public Hearin
City Council Meeting/ \
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'9 ^ Staff Technical Advisory
Committee Meeting
Envision Carlsbad Phase 2: Draft Work Program
July/, 2010
C, I
AB: Assembly Bill
ALUCP Airport Land Use Compatibility
Plan
CC: City Council
CEQA:California Environmental Quality
Act
CESA: California Endangered Species
Act
CIP: Capital Improvement Program
DEIR: Draft Environmental Impact
Report
EC3: Envision Carlsbad Citizens'
Cornmittee
EIR: Environmental Impact Report
FEIR: Final Environmental Impact
Report (also Final EIR)
FESA: Federal Endangered Species Act
GHG: Greenhouse Gas
GIS: Geographic Information Systems
GP: General Plan
HC: Housing Commission
HCD: California Department of Housing
and Community Development
LCP: Local Coastal Program
MPO: Metropolitan Planning
Organization
NOP: Notice of Preparation
RHNA: Regional Housing Needs
Allocation
RTP: Regional Transportation Plan
SANDAG: San Diego Association of
Governments
SB:Senate Bill
TAC: (Staff Interdepartmental)
Technical Advisory Committee
61
Community
Vision
Thousands of community members have participated
in the city-sponsored Envision Carlsbad program to create a
community vision for Carlsbad's future. The core values and vision
statements emerging from this process serve as a guide for city
leaders as they carry out their service to all who live, work and play
in the City of Carlsbad.
<^ &f^> CITY OF
^CARLSBAD
Small town feel, beach community character and connectedness
Enhance Carlsbad's defining attributes—its small town feel and beach community character. Build on the city's culture of
civic engagement, volunteerism and philanthropy.
Open space and the natural environment
Prioritize protection and enhancement of open space and the natural environment. Support and protect Carlsbad's
unique open space and agricultural heritage.
Access to recreation and active, healthy lifestyles
Promote active lifestyles and community health by furthering access to trails, parks, beaches and other recreation
opportunities.
The local economy, business diversity and tourism
Strengthen the city's strong and diverse economy and its position as an employment hub in north San Diego County.
Promote business diversity, increased specialty retail and dining opportunities, and Carlsbad's tourism.
Walking, biking, public transportation and connectivity
Increase travel options through enhanced walking, bicycling and public transportation systems. Enhance mobility
through increased connectivity and intelligent transportation management.
Sustainability
Build on the city's sustainability initiatives to emerge as a leader in green development and sustainability. Pursue public/
private partnerships, particularly on sustainable water, energy, recycling and foods.
History, the arts and cultural resources
Emphasize the arts by promoting a multitude of events and productions year-round, cutting-edge venues to host world-
class performances, and celebrate Carlsbad's cultural heritage in dedicated facilities and programs.
High quality education and community services
Support quality, comprehensive education and life-long learning opportunities, provide housing and community services
for a changing population, and maintain a high standard for citywide public safety.
Neighborhood revitalization, community design and livability
Revitalize neighborhoods and enhance citywide community design and livability. Promote a greater mix of uses citywide,
more activities along the coastline and link density to public transportation. Revitalize the downtown Village as a
community focal point and a unique and memorable center for visitors, and rejuvenate the historic Barrio neighborhood.
18^"
David de Cordova
From: Patti Krebs [pattik@iea.sdcoxmail.com]
Sent: Monday, June 28, 201 0 3:29 PM
To: David de Cordova
Subject: Re: Envision Carlsbad
Attachments: envision phase 2.doc; Envision Carlsbad 5-5-09.doc
Follow Up Flag: Follow up
Flag Status: Flagged
Well David, in trying to get a meeting organized before July 7, 1 have been unsuccessful getting any of my members to be
available - seems like everyone is combining the July 4th holiday with a vacation.
Thanks for all of the additional materials. I reviewed the documents with specific attention to the following:
(1) Stakeholder Interviews regarding retention, expansion, zoning and financial incentives, page 8; infill development,
page 10; permitting process frustration, page 18.
(2) November 2009 core values "The Local Economy, Business Diversity and Tourism, Business and Jobs, page 18
(3) Phase 2, Draft Work Program, page 30
In general, I think we would like to see a little more emphasis on the production-based, technology and
research/development sectors. The July 7, 2010, Phase 2 Draft Work Plan is certainly an improvement from the
November 2009 Community Vision Document. Here are some ideas/suggestions/statements that we commonly
advocate for to be included in municipal general plan updates and that we would like to see incorporated into Carlsbad's
effort:
industries are lumped together under "Business Retention" with the retail and tourism sectors. Maybe language instead
such as: Carlsbad is home to an already strong urban core of production-based, technology and research/development
companies (noting and emphasizing this sector as distinct from commercial, service and tourism businesses.)" These
companies are base industries that generate well-paid, highly-skilled, upwardly-mobile jobs and have a significant
multiplier effect on the economy. Production-based jobs typically generate a multiplier of 2.5 jobs on the economy; life
science/technology industry jobs generate a multiplier effect of 3.5 jobs on the economy.
*ln the general plan update zoning, it would be helpful to have a specific zone, possibly "light manufacturing" or an
equivalent zone dedicated to preserving and protecting contiguous and cohesive employment lands to be used solely for
production-based, technology and I&DO use to retain, attract and expand these businesses.
*Again, in the general plan update zoning, it would also be helpful to exclude or prohibit incompatible land uses in the
above zone. The production-based, technology and I&DO facilities are all highly regulated and permitted. If sensitive
receptors come in too close proximity, it may trigger additional regulatory and permitting requirements, increase
technology controls or limit a company's ability to operate and expand. Words that cause us concern are infill
development, smart growth, live-work-play communities or transit-oriented development because they may indicate that a
plan update intends to co-locate sensitive receptors, such as residential, schools, family-oriented activities adjacent to or
in close proximity to industrial users.
*l have also frequently heard comments about the length of time or difficulty in permitting but it seems to me that is a
process issue rather than a general plan update issue.
*Lastly, throughout all three documents I saw references to collaboration, partnerships and incentives, but there is no
detail. I think specifics should be considered and spelled out, such as: -are there going to be development credits? -
does the city provide discounted land? -are there guaranteed water rates for industry? -are there fast-track permitting
processes that may be deployed?
Hope this is some constructive input. I am happy to come up to meet with you but thought you might want to wait until I
can get some company representatives to join me or maybe we can continue to correspond via a-mail.
FYI, attached are two documents I have previously submitted to the city.
— Original Message —
From: David de Cordova
To: Patti Krebs
Sent: Thursday, June 24, 2010 10:51 AM
Subject: RE: Envision Carlsbad
Patti,
At this point, we have a few dates and times available to meet with you between now and the 7th:
6/29 @1:30 (probably best for us)
7/1 @ 8:30 or at 1:30
7/6 @1:30
The meeting would take place here at our Faraday offices.
Please let me know as soon as you can if one of these times works for you.
Thanks.
Dave
From: Patti Krebs [mailto:pattik@iea.sdcoxmail.com]
Sent: Thursday, June 24, 2010 10:39 AM
To: David de Cordova
Subject: Fw: Envision Carlsbad
Original Message —
From: Patti Krebs
To: Patti Krebs
Sent: Thursday, June 24, 2010 10:38 AM
Subject: Envision Carlsbad
David, thanks so much for the additional background. I am circulating out everything you sent to the individuals in the
companies who IEA works with you and will get back to you. I realize July 7 is coming up quickly.
INDUSTRIAL
ENVIRONMENTAL
ASSOCIATION
Leaders of Environmental Responsibility
ENVISION CARLSBAD
Proposal to include Economic Prosperity Element
City of Carlsbad General Plan Update
Background:
The mission statement for the City of Carlsbad's "Envision Carlsbad" Citizens' Committee
incorporates the three basic elements of sustainability: the environment, the economy and social
responsibility as the means promote a balanced perspective on a wide range of issues affecting
the City. Envision Carlsbad is charged with the responsibility for identifying the pathway for
Carlsbad's future and providing input into the update of the City's general plan to carry forward
that vision. Economic prosperity to enhance the wealth and livelihood of the city's residents is a
critical component of that vision for the future.
Economic Perspective:
Carlsbad boasts a major urbanized economic core, supported by leading global manufacturing,
high technology and life sciences companies. Economic prosperity is a key component of
quality of life and assures Carlsbad residents of a high standard of living. An economic
prosperity element -- along with policies that support manufacturing, technology and life science
industry retention and expansion with appropriate land use controls and protection — should be
considered for inclusion in the general plan update.
There are many important reasons to support an economic prosperity element in the general plan:
*Economic activity funds public facilities and public services;
*Industry creates high quality, well-paying jobs that offer benefits and career
advancement; and
* Industry investment and growth stimulates the community and provides many
supplier/support jobs; the multiplier effect for every one industrial/technology job is 2.5
supporting jobs.
The City of Carlsbad has the opportunity with this update of the City's general plan to put into
place principles, land use policies and tools to ensure retention of production-based companies
and base sector industries already sited in Carlsbad and also to create the creative and intellectual
environment and infrastructure to attract evolving "information age" and "green technology"
companies.
110 West C Street, Suite 900 San Diego, CA 92101
Key Advantages:
The City of Carlsbad has many advantages to build upon to enhance its economic presence, not
only in the region but also in the national and global marketplace:
* Innovative entrepreneurs;
* Well-trained and highly-educated workforce;
*Close access to major universities and research institutions;
* Well-established business clusters; and
*Water, energy and transportation infrastructure systems.
Role of City of Carlsbad General Plan Update:
Following are a number of ways in which a City's General Plan can bolster economic
development:
* Identifying an adequate supply of land for businesses in order to attract, retain and
expand new and existing facilities;
*Preserving regionally significant employment lands and industrial capacity;
* Supporting base sector companies that drive competitiveness and innovation;
*Encouraging diverse industry types to create a variety of jobs and support services;
*Efficiently using lands set aside for employment lands;
* Assuring adequate transition lands between industrial users and sensitive receptors (the
greatest cause of "urban industrial flight" has been the encroachment of incompatible land uses);
*Proactively interface with facilities on permitting and regulatory issues;
* Strengthening the relationship between workforce educational and training programs to
suit local business needs;
*Fostering and encouraging emerging technologies;
*Developing business incentive programs; and
* Tracking and monitoring industry changes and growth.
Summary:
The City of Carlsbad is uniquely positioned to retain and attract the type of industries that
contribute significantly to a local economy, maintain environmental quality and promote
corporate investment in the local community. Including an Economic Prosperity Element in the
General Plan will signal that Carlsbad has out the "welcome mat" and supports economic
development through good planning.
January 28, 2010
Ms. Jennifer Jesser
City of Carlsbad Planning Department
1635 Faraday Avenue
Carlsbad, CA 92008
Re: Envision Carlsbad Plan, Phase 2
Dear Ms. Jesser:
Thank you for taking time to time to discuss with me the ongoing process for
Envision Carlsbad and the next steps going forward planned for Phase 2.
The Industrial Environmental Association (IEA) has a number of large industrial
facilities located in the City of Carlsbad, representing manufacturing, high technology,
biotech and research and development companies.
We participated in a number of the community visioning sessions and greatly
appreciated the opportunity to provide input on how this planning effort will affect both
existing and expanding companies.
As the City of Carlsbad enters Phase 2, we would respectfully like to request your
consideration for the appointment of an industrial representative for the Envision Citizens
Group. We believe someone who is closely familiar with industrial activities could
provide value in helping preserve and protect Carlsbad's strong industrial economic base.
Some of the ideas we would like to bring to the table, for example, would include:
* Suggestions on further expanding on the Envision Draft Document to
include a more detailed Economic Prosperity Element in the final plan;
* Identification of specific planning-related land use issues that can
adversely affect the ability of facilities to conduct business, forcing them to make
permitting, technological or physical changes to their properties at significant cost;
Page 2
* Recommendations on how the plan could be used to develop
industrial "cluster" strategies to encourage and attract growth in the core industrial sector.
These are some of the ways we would like to contribute to Envision Phase 2 and
believe we could add value to the City's planning effort.
Thank you for your consideration of an IEA representative to the Envision Phase
2 Citizens' Group.
Sincerely,
Patti Krebs
Executive Director